Parliamentary Assembly of the Council of Europe

1. Parliamentary Assembly of the Council of Europe

The **Parliamentary Assembly of the Council of Europe (PACE)** is the parliamentary arm of the Council of Europe, bringing together members of national parliaments from its 46 member states. It is a unique platform for multilateral political dialogue, standard-setting, and oversight in areas such as human rights, democracy, and the rule of law. This article provides a comprehensive overview of PACE, its history, structure, functions, working methods, key priorities, and relationship with other Council of Europe bodies. This is intended as an introductory guide for those unfamiliar with this important international organization.

History and Origins

The Council of Europe was founded in 1949, shortly after World War II, with the primary goal of promoting peace and preventing future conflicts through cooperation and the protection of fundamental values. The initial impulse came from a speech by Winston Churchill in 1946 calling for a “United States of Europe”. The original six founding members were Belgium, France, Germany, Italy, Luxembourg, and the Netherlands.

The **Consultative Assembly**, as PACE was originally known, was established alongside the Council of Europe itself. Its creation was a novel step, representing a move towards greater parliamentary involvement in international affairs. The idea was to provide a democratic forum where parliamentarians could discuss common challenges and propose solutions. Initially, the Consultative Assembly had a primarily advisory role. However, over time, its powers and influence have grown significantly.

The name change from Consultative Assembly to Parliamentary Assembly occurred in 1962, reflecting its evolving role and increased authority. The expansion of the Council of Europe’s membership throughout the Cold War, and particularly after the fall of the Berlin Wall in 1989, dramatically changed the composition and political dynamics of PACE. The integration of parliamentarians from Central and Eastern European countries brought new perspectives and priorities to the Assembly’s work. Council of Europe has consistently adapted to geopolitical shifts.

Structure and Composition

PACE is composed of 636 members of parliament, representing the national parliaments of the 46 member states of the Council of Europe. Each member state is allocated a number of seats proportional to its population, although a minimum of two seats is guaranteed to each country. The principle of proportionality is reviewed periodically to ensure fair representation.

National parliaments are responsible for nominating their delegation to PACE. These delegates are typically Members of Parliament (MPs) or equivalent representatives. The composition of national delegations often reflects the political diversity of the parliament concerned.

The Assembly’s work is organized around a number of **Standing Committees**. These committees focus on specific areas of policy and are responsible for preparing reports and draft resolutions for consideration by the full Assembly. The current Standing Committee structure includes:

• **Political Affairs Committee:** Deals with issues of democracy, human rights, and political stability. This committee often addresses issues of political risk analysis and governance indicators.
• **Committee on Social, Health and Family Affairs:** Focuses on social policy, public health, and family issues. Relevant trends include demographic changes and social inequality metrics.
• **Committee on Culture, Science, Education and Media:** Addresses cultural diversity, education, scientific research, and media freedom. Important analyses include cultural heritage vulnerability assessments and media literacy trends.
• **Committee on Migration, Refugees and Population:** Deals with migration flows, refugee protection, and population issues. This area involves complex migration pattern analysis and refugee integration indicators.
• **Committee on Environment, Agriculture and Local and Regional Authorities:** Focuses on environmental protection, sustainable agriculture, and the role of local and regional authorities. Key areas of study include environmental sustainability assessments and agricultural productivity trends.
• **Committee on Legal Affairs and Human Rights:** Deals with legal issues, human rights violations, and the rule of law. This committee frequently examines human rights violation databases and rule of law index variations.
• **General Rapporteur on the functioning of democratic institutions in Council of Europe member states:** Monitors the state of democracy, human rights, and the rule of law in member states. This role requires deep understanding of democratic backsliding indicators and political stability assessments.

In addition to the Standing Committees, PACE also establishes **Ad Hoc Committees** to address specific issues of temporary importance.

The Assembly elects a **President** who chairs plenary sessions and represents PACE externally. The current President is elected for a one-year term, renewable once. The Bureau of the Assembly, composed of the President and Vice-Presidents, provides administrative and organizational support. The Secretary General of the Council of Europe provides the Secretariat for PACE. Secretary General of the Council of Europe plays a crucial coordinating role.

Functions and Powers

PACE plays a crucial role in the Council of Europe’s work, with a range of functions and powers:

• **Legislative Function:** While PACE does not have the power to directly enact laws binding on member states, it plays a significant role in shaping Council of Europe Conventions and Agreements. It initiates legislative proposals, examines draft Conventions, and issues opinions on their implementation. Convention on Human Rights is a prime example of a Council of Europe Convention heavily influenced by PACE’s work.
• **Oversight Function:** PACE monitors the implementation of Council of Europe Conventions and Resolutions by member states. It can hold governments accountable for their commitments and address concerns about human rights violations or breaches of the rule of law. This involves examining compliance rates with international standards and implementation gap analysis.
• **Political Dialogue:** PACE provides a unique platform for political dialogue between parliamentarians from different countries. It allows for the exchange of views on issues of common concern and the development of common approaches to challenges. This fosters cross-cultural dialogue strategies and conflict resolution frameworks.
• **Standard-Setting:** PACE develops standards and guidelines in areas such as human rights, democracy, and the rule of law. These standards serve as benchmarks for member states and promote best practices. This includes the development of best practice guidelines for democratic governance and human rights impact assessment methodologies.
• **Emergency Procedures:** PACE can convene urgent debates and adopt resolutions in response to crises or emergencies affecting member states. This allows the Assembly to react quickly to pressing political and humanitarian challenges. This requires robust crisis management protocols and rapid response assessment tools.
• **Appointment of Judges**: PACE, along with national sections, plays a role in the election of judges to the European Court of Human Rights. This is a significant power ensuring the Court's independence and legitimacy. European Court of Human Rights is a cornerstone of the Council of Europe's system.

Working Methods

PACE operates according to established rules of procedure. Its work is characterized by:

• **Plenary Sessions:** The full Assembly meets in plenary sessions several times a year, typically in Strasbourg, France. These sessions are open to the public and provide a forum for debate and decision-making. Plenary session transcripts are publicly available.
• **Committee Meetings:** Much of the Assembly’s work is carried out in its Standing Committees. These committees meet regularly to examine specific issues, draft reports, and prepare resolutions. Committee meeting summaries are also available online.
• **Reports and Resolutions:** PACE adopts reports and resolutions on a wide range of topics. These documents express the Assembly’s views and make recommendations to member states. Resolution database access provides search functionality.
• **Debates:** Plenary debates are a key feature of PACE’s work. Parliamentarians have the opportunity to express their views on issues of concern and to challenge government policies. Debate analysis tools are used to understand the key arguments.
• **Amendments:** Members can propose amendments to draft resolutions and reports. These amendments are debated and voted on during plenary sessions. Amendment tracking systems help manage the process.
• **Votes:** Decisions are typically taken by a majority vote. The Assembly uses electronic voting systems to ensure accuracy and efficiency. Voting record archives are maintained.
• **Observer Status:** Parliamentary delegations from countries outside the Council of Europe, as well as representatives of international organizations, can be granted observer status at PACE sessions. Observer status criteria are clearly defined.

Key Priorities and Current Issues

PACE currently prioritizes a number of key issues, including:

• **Protecting Human Rights:** PACE continues to monitor and address human rights violations in member states. This includes issues such as freedom of expression, freedom of assembly, and the rights of minorities. Recent analysis focuses on human rights trends in conflict zones and digital rights challenges.
• **Strengthening Democracy:** PACE works to promote democratic institutions and practices in member states. This includes supporting free and fair elections, strengthening the rule of law, and combating corruption. Current research explores democratic resilience strategies and anti-corruption policy effectiveness.
• **Promoting the Rule of Law:** PACE advocates for the independence of the judiciary, the protection of fundamental rights, and the accountability of governments. This includes monitoring judicial independence indicators and rule of law reform progress.
• **Addressing Social Challenges:** PACE addresses a range of social challenges, including poverty, inequality, and discrimination. Current initiatives focus on social inclusion policies and economic inequality mitigation strategies.
• **Combating Terrorism and Extremism:** PACE works to counter terrorism and extremism by promoting international cooperation and addressing the root causes of radicalization. This involves analyzing terrorism financing networks and extremism prevention programs.
• **Environmental Protection:** PACE promotes environmental sustainability and addresses climate change. This includes advocating for policies to reduce greenhouse gas emissions and protect biodiversity. Relevant data includes carbon emission reduction targets and biodiversity loss assessments.
• **The War in Ukraine**: PACE has been highly active in responding to the Russian invasion of Ukraine, condemning the aggression, supporting Ukraine’s sovereignty and territorial integrity, and addressing the humanitarian consequences of the conflict. Ukraine conflict impact assessment is a major area of focus.

Relationship with Other Council of Europe Bodies

PACE works closely with other bodies of the Council of Europe, including:

• **Committee of Ministers:** The Committee of Ministers is the Council of Europe’s executive body, composed of the foreign ministers of member states. PACE resolutions and recommendations are addressed to the Committee of Ministers, which is responsible for implementing them. Committee of Ministers decision-making processes are closely monitored by PACE.
• **Congress of Local and Regional Authorities:** The Congress of Local and Regional Authorities represents local and regional governments in the Council of Europe. PACE cooperates with the Congress on issues of common concern. Local governance indicators are regularly exchanged between the two bodies.
• **European Court of Human Rights:** PACE monitors the work of the European Court of Human Rights and advocates for the effective implementation of its judgments. European Court of Human Rights jurisprudence analysis is a key part of PACE’s work.
• **Secretary General of the Council of Europe:** The Secretary General provides administrative and logistical support to PACE and facilitates communication between the Assembly and other Council of Europe bodies. Secretary General’s annual reports are reviewed by PACE.

Criticisms and Challenges

PACE has faced criticisms over the years, including concerns about its effectiveness, its representativeness, and its political biases. Some critics argue that PACE resolutions are often non-binding and have limited practical impact. Others have raised concerns about the influence of certain political groups within the Assembly. Recent debates have centered on PACE’s perceived political biases and effectiveness of its resolutions.

The Assembly also faces challenges related to the increasing complexity of international issues and the growing number of member states. Maintaining relevance and ensuring effective participation from all members requires ongoing efforts to adapt its working methods and priorities. Addressing these challenges requires careful consideration of institutional reform proposals and engagement strategies for member states.

Human Rights Democracy Rule of Law International Relations European Politics Council of Europe Conventions Parliamentary Diplomacy Political Risk Geopolitical Analysis European Court of Human Rights

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