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Enlarging the European Union This Page Intentionally Left Blank Enlarging the European Union the Commission Seeking Influence, 1961–1973 Enlarging the European Union This page intentionally left blank Enlarging the European Union The Commission Seeking Influence, 1961–1973 Michael J. Geary Assistant Professor, Maastricht University, The Netherlands Global Europe Fellow, Woodrow Wilson International Center for Scholars, Washington, DC © Michael J. Geary 2013 Softcover reprint of the hardcover 1st edition 2013 978-0-230-30280-8 All rights reserved. No reproduction, copy or transmission of this publication may be made without written permission. No portion of this publication may be reproduced, copied or transmitted save with written permission or in accordance with the provisions of the Copyright, Designs and Patents Act 1988, or under the terms of any licence permitting limited copying issued by the Copyright Licensing Agency, Saffron House, 6–10 Kirby Street, London EC1N 8TS. Any person who does any unauthorized act in relation to this publication may be liable to criminal prosecution and civil claims for damages. The author has asserted his right to be identified as the author of this work in accordance with the Copyright, Designs and Patents Act 1988. First published 2013 by PALGRAVE MACMILLAN Palgrave Macmillan in the UK is an imprint of Macmillan Publishers Limited, registered in England, company number 785998, of Houndmills, Basingstoke, Hampshire RG21 6XS. Palgrave Macmillan in the US is a division of St Martin’s Press LLC, 175 Fifth Avenue, New York, NY 10010. Palgrave Macmillan is the global academic imprint of the above companies and has companies and representatives throughout the world. Palgrave® and Macmillan® are registered trademarks in the United States, the United Kingdom, Europe and other countries. ISBN 978-1-349-33784-2 ISBN 978-1-137-31557-1 (eBook) DOI 10.1057/9781137315571 This book is printed on paper suitable for recycling and made from fully managed and sustained forest sources. Logging, pulping and manufacturing processes are expected to conform to the environmental regulations of the country of origin. A catalogue record for this book is available from the British Library. A catalog record for this book is available from the Library of Congress. To Carmel Moylan and Paddy Geary for their love and support This page intentionally left blank Contents Acknowledgements viii List of Abbreviations x Introduction 1 1 The Commission and Britain’s First Application 15 2 The Commission and the Irish Application 43 3 From Veto to Veto: Britain and the Commission 62 4 Ireland and the Policy of Failure 87 5 Navigating the Gaullist Veto 105 6 La Bataille des Chiffres 133 7 Challenging the Acquis 159 Conclusions 181 Notes 187 Bibliography 231 Index 245 vii Acknowledgements At the European University Institute in Florence, I enjoyed a unique working environment to research and write a PhD on European Union enlargement. I would like to thank the staff at the EUI for their administrative help, and the Government of Ireland/EUI for funding the doctoral scholarship. Profes- sors N. Piers Ludlow and Pascaline Winand provided excellent supervision. They both deserve warm thanks for their constant support and professional guidance. Professors Kiran Klaus Patel and Jan van der Harst offered advice and constructive comments, and shared their wealth of knowledge, and for this I am very grateful. Kiran, in particular, has been a constant source of encouragement since I left Florence – a thousand thanks. Dr Denise Dunne, NUI Maynooth, merits a special mention for first sug- gesting that I explore the historical role of the European Commission, and for being a highly supportive mentor over the last number of years. Madame Collonval and her colleagues at the European Commission Archives in Brussels were always very helpful and efficient during my many research trips. I also wish to thank staff at various archives around Europe, and in the United States. Palgrave Macmillan and my editors, Clare Mence and Holly Tyler, were predictably efficient throughout the publication process. An anonymous reviewer provided me with some very useful suggestions. A Fulbright-Schuman Fellowship to Washington, DC, and a European Parliament-Bronisław Geremek Research Fellowship to the College of Europe (Warsaw) allowed me time to work on the manuscript. In DC, I would like to offer particular thanks to Professors Michael Kimmage and Jerry Muller at the Catholic University of America, who welcomed me into the History Department. Bill Erb, Professor Stefania Lucamante, and their sons, Stefano and Lamberto, gave me a very warm and generous Italian introduction to life in Washington. Professor Barbara Curli, Kevin A. Lees, and the incredibly tal- ented Septime Webre ensured that my Fulbright experience was everything I could have hoped for. In Warsaw, words of appreciation warmly go to Piotr Kozikowski, Anna Flanagan, Ambassador Eugene Hutchinson, and Dr Iryna Vushko. I would also like to express my deep gratitude to the pre-eminent Woodrow Wilson International Center for Scholars in DC, where I worked on the final corrections. At various stages of this project, family and friends provided encourage- ment, and light relief from the solitary process of archival research, writing, and revising. Let me thank William Casey, Professor Vincent Comerford, Laura Danielìut¯ e,˙ Thomas J. Doyle, Mary Fitzpatrick and Seán Cody, Mary Geary, Dr Carine Germond, Professor Margaret Kelleher, Dr Georgina and Elizabeth Laragy, Tony McCarthy, Dr Emmanuel Mourlon-Druol, Dr Patryk viii Acknowledgements ix Pawlak, Malcolm Quigley, Stelios Makriyiannis, Kieran Moylan, Jeroen van Liempd, Thierry Rancé-Francius, and the inspiring Dr Bernadette Trehy. I also wish to thank Anthony, Brian, Bridget, David, Mairéad, and Nora, and my parents, Rita and John Geary, who remain my biggest supporters. I dedicate the book to Carmel Moylan and Paddy Geary, for their love and support. Washington, DC, April 2013 Abbreviations In the text AOTs Associated Overseas Territories CAP Common Agricultural Policy CEE Central and Eastern Europe CET Common External Tariff CFP Common Fisheries Policy COREPER Committee of Permanent Representatives ECSC European Coal and Steel Community EDC European Defence Community EEC European Economic Community EFTA European Free Trade Association EU European Union EURATOM European Atomic Energy Community FCO Foreign and Commonwealth Office, London FTA Free Trade Area GATT General Agreement on Tariffs and Trade GNP Gross National Product NATO North Atlantic Treaty Organization OECD Organisation for Economic Cooperation and Development OEEC Organisation for European Economic Cooperation UN United Nations WEU Western European Union In the notes CAB British Cabinet Papers CMA Council of Ministers Archives, Brussels CM Common Market D/AF Department of Agriculture and Fisheries, Dublin D/EA Department of External Affairs, Dublin D/FA Department of Foreign Affairs, Dublin D/T Department of the Taoiseach, Dublin EM Edoardo Martino Papers, Florence EN Emile Noël Papers, Florence FCO Foreign and Commonwealth Office FO Foreign Office, London x List of Abbreviations xi FRUS Documents on the Foreign Relations of the United States HAEC Historical Archives of the European Commission, Brussels HAEU Historical Archives of the European Union, Florence JR Jean Rey Papers, Brussels KM Klaus Meyer Papers, Florence MK Max Kohnstamm Papers, Florence NAI National Archives of Ireland, Dublin NARA National Archives and Records Administration, Washington, DC PREM British Prime Minister’s Files TNA The National Archives, London WH Walter Hallstein Papers, Brussels Introduction On 1 January 1973, the European integration project took a major leap forward when Britain, Denmark, and Ireland joined the European Economic Community (EEC), the forerunner to today’s European Union (EU). The first enlargement, arguably its most divisive, represented a significant mile- stone in the Community’s short existence. Over the following decades, the EU would face many more requests for membership. Shortly after the first enlargement, the Mediterranean countries came knocking on the door, eager to benefit from the growing prosperity within the Common Market, and to seek shelter from the global economic storm that raged during the 1970s and 1980s. By 1986, Greece, Spain, and Portugal had brought the number of members to 12. The rapid accession of three underdeveloped countries into the Community proved it was not a club for rich industrial nations. With the fall of the Berlin Wall in 1989, East Germany entered the Community as part of a reunified Germany. The Nordic countries of Austria, Finland, and Sweden secured membership in 1995. The collapse of the Soviet Union in the early 1990s meant that letters of application to join the EU arrived in Brussels in quick succession from many former Soviet-controlled states in Central and Eastern Europe (CEE). In 2004, membership rose from 15 to 25 with the historic enlargement to include eight CEE countries, as well as Cyprus and Malta, while three years later Romania and Bulgaria joined. Croatia entered the EU in 2013. Many more countries are eager to join, including Iceland and Turkey. The enlargement process that began in the 1960s is far from complete. This book analyses the policies of the European Commission towards the first enlargement of the present-day EU between 1961, when Britain’s first attempt at membership was made, and 1973, when Britain, Denmark, and Ireland joined the European Communities. It explores how the Commission responded to the inherent risks to the Common Market project by allowing Britain,
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