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Die verfassungsrechtliche Doktrin kennt das Institut eines sogenannten obligatorischen Referendums sui generis, das zur Anwendung gelangen kann, wenn ein völkerrechtlicher Vertrag funktional einer Verfassungsänderung gleichkommt. Dieses Instrument ist jedoch weder ausdrücklich in der Bundesverfassung verankert noch durch den Gesetzgeber kodifiziert (vgl. AB 2021 N 810-813).

In seiner Analyse vom 27. Mai 2024 (veröffentlicht durch das Bundesamt für Justiz, BJ) hält der Bund ausdrücklich fest, dass das im Raum stehende Verhandlungsergebnis zu einem Rahmenabkommen aller Voraussicht nach nicht die Voraussetzungen für ein solches Referendum sui generis erfüllt. Im erläuternden Bericht zur Eröffnung des Vernehmlassungsverfahrens führt der Bundesrat aus, dass er diese Einschätzung teilt. Nach seiner Auffassung erfüllen die vorgesehenen völkerrechtlichen Verträge zur Stabilisierung der bilateralen Beziehungen nicht die Voraussetzungen, unter denen nach der Praxis zur früheren Bundesverfassung ein völkerrechtlicher Vertrag, der nicht dem obligatorischen Staatsvertragsreferendum unterstand, ausnahmsweise einem solchen (sui generis) unterstellt werden konnte.

Der Kanton Nidwalden teilt diese Einschätzung des Bundesrates nicht. Er ist der Auffassung, dass die entsprechenden Bundesbeschlüsse dem obligatorischen Staatsvertragsreferendum beziehungsweise einem obligatorischen Staatsvertragsreferendum sui generis zu unterstellen sind. Das vorgesehene Vertragswerk sieht vor, dass bei Anwendungsschwierigkeiten der Europäische Gerichtshof die Auslegung einschlägiger Bestimmungen übernimmt, sofern Unionsrecht zur Anwendung gelangt oder unionsrechtliche Begriffe betroffen sind. Dessen Auslegung ist für das Schiedsgericht verbindlich. Im Ergebnis nähert sich dieses Verfahren dem im Unionsrecht vorgesehenen Vertragsverletzungsverfahren an; die Überwachung der Vertragstreue wird damit faktisch an Institutionen der EU übertragen.

Weiter ist eine sogenannte dynamische Rechtsübernahme neuen Unionsrechts durch die Schweiz vorgesehen, allerdings beschränkt auf die vertraglich definierten Bereiche. Zwar kann die Schweiz die Übernahme dieses Rechts nach Massgabe ihrer innerstaatlichen Verfahren ablehnen; faktisch steht sie jedoch unter dem Druck möglicher Ausgleichsmassnahmen, was die freie Willensbildung im Parlament und gegebenenfalls auch im Volk beeinträchtigen kann.

Der Kanton Nidwalden bezweckt mit dieser Standesinitiative, dass der Abschluss der vorlie-genden EU-Verträge, auch etwa als «Bilaterale III» bezeichnet, beziehungsweise eines «Rah-menabkommens 2.0» dem obligatorischen Staatsvertragsreferendum sui generis unterstellt wird. Dadurch wird sichergestellt, dass über ein Abkommen von erheblicher institutioneller Tragweite in einem erhöht legitimierten Verfahren entschieden wird und sich die politische Auseinandersetzung auf die materiellen Inhalte konzentrieren kann.

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Der Kanton Nidwalden unterbreitet der Bundesversammlung gestützt auf Art. 160 Abs. 1 der Bundesverfassung eine Standesinitiative mit folgendem Wortlaut:

Die Bundesversammlung wird aufgefordert, ein Rahmenabkommen mit der Europäischen Union (EU) dem obligatorischen Staatsvertragsreferendum sui generis zu unterstellen. Ein derart weitreichendes institutionelles Abkommen bedarf der demokratischen Zustimmung von Volk und Ständen.

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Open the editor to rearrange the colours, labels and order, and export.","voting_editor_show_counts","Show vote counts","voting_editor_show_percent","Show percentages","voting_editor_show_title","Show vote title","voting_editor_show_affair","Show affair title","voting_editor_show_body","Show body title","voting_editor_show_all_titles","Show all titles","voting_editor_show_party_band","Show parliament line","voting_editor_show_group_line","Show group line","voting_editor_transparent","speeches_title","speeches_loading","Searching speeches…","speech_person","Speaker","speech_body","Institution","speech_affair","speech_meeting","groups_title","no_groups","No groups found.","group_untitled","Untitled group","section_meetings","no_meetings","No recorded meetings.","view_all_meetings","View all meetings","meetings_title","meeting_untitled","meeting_upcoming","Upcoming","facet_time","When","facet_upcoming","facet_past","Past","group_abbreviation","Abbreviation","group_description","Description","group_official_record","Official page","group_contact","member_unknown","section_votings","interests_title","interest_details","Details","interest_person","Declared by","interest_body","Granting body","interest_role","interest_type","interest_group","interest_place","Place","interest_period","Period","meeting_details","meeting_type","meeting_state","meeting_number","meeting_location","Location","meeting_period","meeting_group","meeting_body","group_type","description","controls_search_placeholder_meetings","Search meetings …","controls_search_hint_meetings","Name, location or description","section_agendas","no_agendas","No agenda items.","view_all_agendas","View all agenda items","agenda_untitled","speech_speaker_unknown","video","doc_untitled","Document","doc_body","doc_affair","doc_meeting","doc_agenda","section_contributors","Contributors","no_contributors","No contributors.","view_all_contributors","View all contributors","sort_number","topics_title","Most-used words","topics_intro","The words this person uses most across their speeches, with common filler words removed. 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Widen the range.","loyalty_chart_alt","Dissent rate of each member, coloured by party.","loyalty_col_member","loyalty_col_party","loyalty_col_group","loyalty_col_ballots","loyalty_col_dissents","Against","loyalty_col_rate","Dissent","loyalty_from","loyalty_to","loyalty_scale","Scale","loyalty_scale_log","Log","loyalty_scale_linear","Linear","cohesion_title","Group cohesion","cohesion_hint","mean Agreement Index (1 = unanimous)","section_alignment","Voting alignment","no_alignment","Not enough shared votes to compare.","view_all_alignment","View full alignment","sort_agreement","Agreement","sort_shared","Shared votes","facet_min_shared","Min. shared","min_shared_10","≥ 10","min_shared_20","≥ 20","min_shared_50","≥ 50","min_shared_100","≥ 100","section_body_alignment","body_alignment_subtitle","How members of this chamber vote relative to one another, from the votes they have in common. In the map, members who vote alike sit close together and opponents far apart. Colours are parties, so blocs and coalitions show up as clusters. The grid gives the average agreement between each pair of parties (the diagonal is each party's own internal cohesion).","alignment_from","alignment_to","alignment_view","View","alignment_view_scatter","Map","alignment_view_heatmap","Party grid","alignment_empty","Not enough votes in this window to build the model.","alignment_window_note","Most meaningful within a single legislative period: the model compares members from the votes they have in common. If the window spans an election or a change in composition, members with different terms barely overlap and positions become less comparable.","alignment_no_parties","No party groups to compare in this window.","alignment_scatter_alt","Members placed by voting similarity","alignment_pairs","pairs","alignment_heatmap_caption","Each cell is the average agreement between members of the two parties (diagonal = a party's internal cohesion). ± is the 95% confidence range and n the number of member-pairs behind it. A small range over many pairs means the alignment is well-established; a wide range means it's only suggestive.","alignment_members_heading","Members","alignment_col_member","alignment_col_party","alignment_col_votes","alignment_col_chamber","Aligns with chamber","alignment_col_party_align","Within party","alignment_zoom_in","Zoom in","alignment_zoom_out","Zoom out","alignment_zoom_reset","Reset zoom","alignment_filters","Filters","section_lobby","Lobby network","lobby_subtitle","The organizations members of this chamber declare in their register of interests, and where those ties overlap. In the network, members are dots (coloured by party) and organizations shared by two or more members are squares. Members who share the same organizations pull together. The breakdown shows how many mandates are paid versus unpaid, and who holds the most.","lobby_empty","No declared interests for this chamber in this window.","lobby_no_shared","No organizations are shared by two or more members here. See the breakdown.","lobby_network_alt","Members and the organizations they share","lobby_mandates","mandates","lobby_members_tied","members","lobby_unknown","Unknown","lobby_org_node","Organization","lobby_payment_heading","Paid vs unpaid mandates","lobby_top_orgs","Most-shared organizations","lobby_top_members","Members by mandates","discussion_title","Speech profiles","discussion_intro","Where members sit on a latent axis derived purely from the words they use in their speeches (Wordfish scaling).","discussion_calculating","Scaling speeches…","lobby_calculating","Computing lobby network…","discussion_error","The speech scaling could not be computed.","discussion_converged","Model converged","discussion_not_converged","Model did not fully converge. Read positions with extra caution.","discussion_members_scored","Members scored","discussion_vocab","Vocabulary","discussion_window","Window","discussion_show_all","discussion_show_reliable","Reliable only","discussion_methodology","How this is computed","discussion_range_label","Time range","discussion_range_1y","1 year","discussion_range_2y","2 years","discussion_range_4y","4 years","discussion_range_8y","8 years","discussion_plot_alt","Members placed along a word-choice axis","discussion_plot_caption","Each dot is one member, placed by the words they use in their speeches. Members who reach for the same distinctive words sit close together; members who talk very differently sit far apart. So a member's spot isn't assigned by us; it comes out of how they actually speak. For example, someone who keeps saying “tax”, “budget” and “spending” lands far from someone who mostly says “asylum”, “border” and “integration”. Hover any dot for its details. Filled dots have enough speech to place reliably; hollow rings spoke too little, so read their position with caution.","discussion_empty","No speeches are available for this parliament, so its members can't be placed on the axis. This scaling reads the words members actually speak, and the data set only holds speech transcripts for a few parliaments: the federal chambers and a handful of cantons such as Bern, Basel-Stadt or St. Gallen. You can also try a longer time range above.","discussion_empty_sparse","There is too little speech transcript text for this parliament to place its members on the axis. Try a longer time range above.","discussion_pole_a","One pole","discussion_pole_b","Other pole","discussion_col_party","discussion_key_filled","Enough text (reliable)","discussion_key_ring","Below the word floor (low confidence)","discussion_align_title","Does the axis track party?","discussion_align_hint","How much of the spread in positions is explained by party membership (η²): 100% = parties are perfectly separated, ~0% = party tells you nothing.","discussion_align_strong","parties are clearly separated","discussion_align_moderate","parties are partly separated","discussion_align_weak","party barely explains the axis","discussion_poles_title","What the axis is made of","discussion_poles_hint","The words that most pull members towards each pole. The axis only means something once you read these. Its direction is arbitrary.","discussion_no_party","No party","discussion_col_name","discussion_col_position","Position","discussion_col_words","Words","discussion_col_speeches","discussion_low_confidence","low confidence","discussion_table_title","discussion_read_title","How to read this","discussion_read_direction","The axis direction is arbitrary: Wordfish finds the split, not which side is “left” or “right”. Read the word poles to see what each side means.","discussion_read_uncertainty","Positions are standardized, so the spread is a convention, not a real distance. Wider error bars (and hollow dots) mean less certainty, so don't over-read those members.","discussion_read_confound","Speech style reflects role as much as ideology: committee chairs, ministers and frequent speakers can land at a pole because of what they do, not only what they believe.","organizations_title","organizations_none","No organizations.","org_members","org_mandates","org_bodies","org_members_heading","org_no_members","No members.","org_col_member","org_col_party","org_col_body","org_col_role","org_col_payment","Payment","org_col_period","sort_members","sort_mandates","Mandates","interest_unknown","lobby_panel_person","Declared organizations","lobby_panel_org","Members with this mandate","lobby_table_heading","Who is tied to what","lobby_table_explain","The full matrix marks every member against every shared organization: one dot per declared tie, the exhaustive view of who is tied to what.","lobby_table_large","For this chamber that is","lobby_table_cells","cells","lobby_table_show","Show table","lobby_select_hint","Select a member or organization to see its ties.","close","not_found_person","Person not found","not_found_body","Parliament not found","not_found_affair","Affair not found","not_found_group","Committee or group not found","not_found_voting","Voting not found","not_found_meeting","Meeting not found","not_found_interest","Interest not found","not_found_organization","Organization not found","not_found_text","Text not found","not_found_doc","Document not found","not_found_speech","Speech not found","not_found_hint","There is no entry with the ID {id}. It may have been removed, or the link may be outdated.","not_found_back","Back to the overview","about","About","faq","FAQ","section_title","section_title_bodies","section_title_affairs","section_title_votings","section_title_texts","section_title_docs","section_subtitle_search","section_subtitle_discussion",{"_1559":1560,"_1576":728,"_1577":1578,"_1579":1580,"_1581":902,"_1280":490,"_1260":289,"_95":494,"_1582":497,"_1565":299,"_1583":1584,"_1585":699,"_1378":249,"_92":259,"_1562":401,"_97":269,"_19":500,"_99":279,"_1586":1012,"_1587":1199,"_1588":1235,"_1589":1199,"_1590":1591,"_1592":1199,"_1593":1594,"_1595":490,"_1596":667,"_1597":1199,"_1598":1580,"_1599":494,"_1566":368,"_1600":1601,"_1198":1199,"_1602":607,"_1211":1199,"_90":505,"_1603":1406,"_1604":1272,"_1605":1306,"_1606":1584,"_1607":1390,"_1567":309,"_1608":1382,"_1609":1199},"section_switcher",{"_1557":1558,"_1559":1560,"_1561":249,"_88":445,"_92":259,"_1562":401,"_1563":335,"_1260":289,"_99":279,"_1564":269,"_1565":299,"_1566":368,"_1567":309,"_1568":1569,"_1570":1571,"_1572":1573,"_1574":1575},"section_title_speeches","section_title_groups","section_title_interests","section_title_meetings","section_title_organizations","label_section","Section","home","Home","people","affairs","groups","documents","interests","meetings","organizations","group_parliament","Actors","group_proceedings","Proceedings","group_records","Records","group_lobbying","Lobbying","search","eyebrow","Data on {{name}}","overview","Overview","personal_data","memberships","access_badges","Lobby","images","texts_overview","text_details","docs_overview","doc_details","votings_overview","Voting","voting_details","voting_diagram","Diagram","voting_tally","speeches_overview","speech_details","groups_overview","contributions","interests_overview","Interest","meetings_overview","vocabulary","loyalty","alignment","lobby","discussion","organizations_overview","org_details",{"_1653":1654,"_1655":1656,"_1611":1657,"_200":1658},"intro",{"_1613":1614,"_1615":1616,"_1617":1618,"_1619":1620,"_1621":1622},"en",{"_1623":1648,"_1625":1649,"_1627":1650,"_1629":1651,"_1631":1652},"de",{"_1623":1643,"_1625":1644,"_1627":1645,"_1629":1646,"_1631":1647},"fr",{"_1623":1638,"_1625":1639,"_1627":1640,"_1629":1641,"_1631":1642},"it",{"_1623":1633,"_1625":1634,"_1627":1635,"_1629":1636,"_1631":1637},"es",{"_1623":1624,"_1625":1626,"_1627":1628,"_1629":1630,"_1631":1632},"cookie","Solo utilizamos cookies esenciales y funcionales. Sin análisis, sin seguimiento.","dataLang","Suiza tiene cuatro lenguas nacionales, y estos datos existen en varias de ellas. Algunos registros están en varias lenguas, otros en una sola. Puede elegir en qué idioma se muestra el contenido; cuando su elección no está disponible para un registro, se utilizan las demás lenguas en un orden de prioridad fijo. Esto es independiente del idioma de la interfaz. Configúrelo en Ajustes › Idioma del contenido (arriba a la derecha).","alt","Esta página también está disponible en español.","switch","Ver en español","dismiss","No volver a mostrar","Utilizziamo solo cookie essenziali e funzionali. Nessuna analisi, nessun tracciamento.","La Svizzera ha quattro lingue nazionali e questi dati esistono in diverse di esse. Alcune voci sono in più lingue, altre in una sola. Puoi scegliere in quale lingua mostrare i contenuti; se la tua scelta non è disponibile per una voce, vengono usate le altre lingue secondo un ordine di priorità prestabilito. Questo è indipendente dalla lingua dell'interfaccia. Impostabile in Impostazioni › Lingua del contenuto (in alto a destra).","Questa pagina è disponibile anche in italiano.","Vedi in italiano","Non mostrare più","Nous utilisons uniquement des cookies essentiels et fonctionnels. Aucune analyse, aucun suivi.","La Suisse a quatre langues nationales, et ces données existent dans plusieurs d'entre elles. Certaines entrées sont en plusieurs langues, d'autres dans une seule. Vous pouvez choisir la langue d'affichage du contenu ; si votre choix n'est pas disponible pour une entrée, les autres langues sont utilisées selon un ordre de priorité défini. Ceci est indépendant de la langue de l'interface. Réglable dans Paramètres › Langue du contenu (en haut à droite).","Cette page est aussi disponible en français.","Voir en français","Ne plus afficher","Wir verwenden nur essenzielle, funktionale Cookies. Keine Analyse, kein Tracking.","Die Schweiz hat vier Landessprachen, und diese Daten liegen in mehreren davon vor. Manche Einträge sind mehrsprachig, andere nur in einer Sprache. Sie können wählen, in welcher Sprache die Inhalte angezeigt werden; ist Ihre Wahl für einen Eintrag nicht verfügbar, werden die übrigen Sprachen in einer festen Prioritätsreihenfolge verwendet. Dies ist unabhängig von der Oberflächensprache. Einstellbar unter Einstellungen › Inhaltssprache (oben rechts).","Diese Seite ist auch auf Deutsch verfügbar.","Auf Deutsch anzeigen","Nicht mehr anzeigen","We use only essential, functional cookies. No analytics, no tracking.","Switzerland has four national languages, and this data comes in several of them. Some records are in multiple languages, some in only one. You can choose which language the content is shown in; when your choice isn't available for a record, the remaining languages are used in a set priority order. This is independent of the interface language. Set it under Settings › Content language (top right).","This page is also available in English.","View in English","Don't show again","settings",{"_1695":1696,"_1697":1698,"_1699":1063,"_1700":1701,"_1702":1065,"_1703":1067,"_1704":1705,"_1706":1707,"_1708":1709,"_1710":1711,"_1712":1713,"_555":556,"_1714":1715,"_1716":1717,"_1718":1719,"_1720":1721,"_1722":1723},"nav",{"_1559":1667,"_1668":605,"_1669":1670,"_1671":1672,"_1568":1569,"_1570":1571,"_1572":1573,"_1574":1575,"_1561":249,"_88":445,"_1563":335,"_1562":401,"_92":259,"_1566":368,"_1260":289,"_99":279,"_1564":269,"_1565":299,"_1567":309,"_1673":1660,"_1674":1675,"_1537":1538,"_1676":1677,"_1539":1540,"_1678":1679,"_1680":1681,"_1682":1683,"_1684":1685,"_1686":1687,"_1688":1664,"_1689":1690,"_1691":1692,"_1693":1694},{"_1623":1648,"_1625":1649,"_1627":1650,"_1629":1651,"_1631":1652},{"_1659":1660,"_1661":1662,"_1663":1664,"_1665":1666},"project.title","Project","project.desc","About parlhub: what the portal is, answers to common questions, and how the data fits together.","experiments.title","Experiments","experiments.desc","Experimental analyses and methodology showcases on parlhub, including the Wordfish scaling of parliaments from their speeches.","parlhub home","explore","start","Start here","start_desc","Quicklinks to chambers, cantons and communes","project","project_desc","The project at a glance","about_desc","What parlhub is and who is behind it","faq_desc","Answers to common questions","data_guide","Data guide","data_guide_desc","Every kind of data, in plain terms, with examples","data_map","Data map","data_map_desc","How the data fits together, at a glance","experiments","experiments_desc","Experimental analyses and methodology write-ups","wordfish","Wordfish scaling","wordfish_desc","Placing members on an axis by the words in their speeches","menu_label","Settings","appearance","Appearance","theme","theme_system","System","theme_light","theme_dark","font_size","Font size","font_size_decrease","Decrease font size","font_size_increase","Increase font size","high_contrast","High contrast","grayscale","Grayscale","interface_language","Interface","content_language","Content language","content_language_auto","Auto (follow interface)","content_language_note","Language of the displayed data (names, titles, texts). Independent of the interface; when a record isn't available, the next language is used.","content_language_priority","Priority",{"_1699":1725,"_1704":1726,"_1727":52,"_1728":1729,"_1730":1729,"_1731":52,"_1732":-5},"system",100,"show_cookie_consent_message","ui_high_contrast",false,"ui_grayscale","msg_lang_hint","content_lang"]