The adoption of the European flag on December 9, 1955, by the Council of Europe was not merely the selection of an emblem but the culmination of a six-year search for a visual symbol to represent a continent yearning for unity after the profound fractures of the Second World War. This journey, filled with complex debates, alternative proposals, and delicate political compromises, resulted in one of the world's most recognizable symbols. Its twelve gold stars in a perfect circle against an azure blue field have since transcended their original institutional purpose to become a powerful icon of shared identity, representing both the Council of Europe and the European Union, and standing for the ideals of unity, solidarity, and harmony among the peoples of Europe .
The Historical and Institutional Context: A Europe in Search of Unity
To fully appreciate the flag's creation, one must understand the institution that birthed it. The Council of Europe was founded on May 5, 1949, by the Treaty of London, with an original membership of ten states: Belgium, Denmark, France, Ireland, Italy, Luxembourg, the Netherlands, Norway, Sweden, and the United Kingdom . Its fundamental mission, distinct from the later economic-focused European Communities, was to uphold human rights, pluralist democracy, and the rule of law across the continent. From its inception in Strasbourg, the organization was conscious of the need for a symbol—a flag—with which the people of Europe could identify and that could give a tangible face to the abstract concept of European unity. The debate on this symbol began almost immediately in 1949 .
The task of finding this symbol fell primarily to two bodies within the Council: the Consultative Assembly (now the Parliamentary Assembly), which acted as a deliberative forum, and the Committee of Ministers, the organization's decision-making body. The Assembly's Committee on Rules of Procedure and Privileges took initial charge, and by 1951, the Secretariat General had compiled a shortlist of twelve distinct proposals for the Assembly's consideration . This early phase was characterized by a wealth of ideas from both officials and the public, reflecting the diverse visions for post-war Europe.
The Design Competition and Rejected Proposals
The path to the final flag was paved with numerous rejected designs, each representing a different philosophical or symbolic approach to European identity. One of the most prominent early contenders was the flag of the Paneuropean Union, championed by its founder, Richard von Coudenhove-Kalergi . This design featured a red cross centered on a golden sun, all on a blue field. While Kalergi passionately argued that the cross represented "the great symbol of Europe's moral unity," the proposal was met with firm opposition from Turkey, a member since 1949, which objected to its explicit Christian connotations. Even Kalergi's suggested compromise of adding a crescent to the design failed to overcome these objections .
Other notable proposals included a flag from the European Movement itself, which consisted of a large green 'E' on a white background . Another inventive concept was based on the Olympic rings, featuring eight interlocking golden rings on a blue field. This design, however, was ultimately rejected as the rings were unfavorably compared to a telephone dial, chains, or zeros. Perhaps the most poignant submission came from a European man living in Japan, who described gazing at the planet Venus each evening and thinking of home. His proposed design of a single star on a blue field was compelling but had to be discarded because it was identical to the flag of the Belgian Congo .
The Crucial Shift: From Political Representation to Symbolic Perfection
A critical turning point in the selection process was the move away from designs where the number of elements corresponded directly to the number of member states. In 1953, the Consultative Assembly initially voted to adopt a flag with fifteen gold stars on a blue background, intending each star to represent a member state, which at the time included the disputed territory of the Saar . This decision immediately provoked a strong protest from Germany, which challenged both the political implication regarding the Saar and the Assembly's authority to unilaterally adopt a symbol for the entire organization .
This controversy led to a fundamental re-evaluation. The Committee of Ministers asserted its authority and established a new ad hoc committee to revisit the issue . The flaw in a variable-number design became apparent: with the expectation of future members joining the Council of Europe, any flag tied to membership would require constant alteration, undermining its stability and recognizability. This led to the seminal decision that the number of elements on the flag should be fixed and symbolic, rather than political. The choice fell upon the number twelve, which was chosen precisely because it carried a timeless meaning. As described in the official symbolism, twelve is a symbol of "perfection and completeness," evoking a range of universal concepts such as the twelve months of the year, the twelve labors of Hercules, and the twelve signs of the zodiac . This shift was essential in creating a flag meant to last.
The Final Selection and Adoption Process
By 1955, the field had narrowed to two final designs, both featuring stars on a blue background but with a crucial difference in arrangement. The first was a proposal by Spanish statesman Salvador de Madariaga, which featured a constellation of stars positioned according to the locations of European capitals, with a larger star for Strasbourg . The second was a design for a simple, symmetrical circle of stars. While several individuals submitted concepts for a circle of stars, the most prolific submitter was Arsène Heitz, a modest employee in the Council of Europe's postal service. Over several years, Heitz had submitted dozens of flag designs to the Secretariat .
In January 1955, the Ministers' Deputies reviewed a mini-exhibition of designs and shortlisted these two . They expressed a clear preference for the circle of twelve stars. This recommendation was sent to the Consultative Assembly, which on October 25, 1955, voted unanimously to support the twelve-star circle over Madariaga's constellation. The final, formal adoption came from the Committee of Ministers on December 9, 1955, with the flag being officially unveiled to the public in Paris on December 13, 1955. The graphic specifications were meticulously defined: a rectangular flag with 2:3 proportions, the stars (each with five points) arranged in a perfect circle "like the hour positions on the face of a clock," against a background of Pantone Reflex Blue .
The Enduring Mystery and Debate: Religious Symbolism
A fascinating and enduring layer of the flag's story involves a potential religious inspiration. Years after the adoption, in 1987, Arsène Heitz suggested that his design was inspired by the iconography of the Blessed Virgin Mary, specifically the "woman clothed with the sun" from the Book of Revelation, who is traditionally depicted with a "crown of twelve stars" . Heitz further noted that the flag was adopted on December 8, 1955, which coincided with the Catholic Feast of the Immaculate Conception. This claim was bolstered by the Council of Europe's donation of a stained-glass window to Strasbourg Cathedral in 1956, which features a Marian figure under a circle of twelve stars .
However, Paul M.G. Lévy, the Director of Information at the Council who oversaw the entire selection process, consistently and publicly denied any awareness of such religious connotations during the design phase . In later interviews, Lévy even contested the extent of Heitz's role, stating, "I did, and I calculated the proportions," while acknowledging Heitz as one of many who submitted circle-of-stars designs. Historical research by scholars like Carlo Curti Gialdino suggests Heitz's original proposals were varied and that the final twelve-star version was selected by the committee from among his submissions . This duality between a possible private inspiration and the official, secular symbolism of unity and perfection has become an inseparable part of the flag's rich narrative.
Evolution into a Pan-European Symbol: Adoption by the European Communities
The flag's journey did not end in 1955. The Council of Europe had always hoped its symbol would be adopted by other European institutions . This ambition was realized decades later. In April 1983, the European Parliament passed a resolution advocating for the flag's adoption by the European Communities. The leaders of the member states, meeting as the European Council, formally approved this adoption in June 1985. On May 29, 1986, the flag was raised for the first time outside the Berlaymont building, the headquarters of the European Commission in Brussels .
This moment marked the beginning of the flag's dual identity. It remained (and remains) the official flag of the 46-member Council of Europe, the continent's leading human rights organization . Simultaneously, it became the emblem of the European Communities, which evolved into the European Union in 1993. This shared usage is possible because all EU member states are also members of the Council of Europe. The flag's status was further cemented in the public consciousness with the introduction of euro banknotes in 2002, which prominently feature the twelve-star motif. Despite its ubiquitous use, it is noteworthy that the flag has never been formally written into the EU's foundational treaties. An attempt to do so in the failed 2004 Constitutional Treaty was not carried over into the ratified Treaty of Lisbon, though a majority of member states have since affirmed their attachment to it via a separate declaration .
Conclusion: The Legacy of the Twelve Stars
The European flag stands today as a powerful testament to a deliberate and difficult search for common ground. Its design neutral, timeless, and simple was consciously chosen to avoid the national, religious, or political divisions that had historically plagued the continent . More than just an institutional logo, it has become a truly popular symbol. It flies not only on government buildings but at international sports events like the Ryder Cup, is carried by citizens in nations aspiring to join the European project, and is displayed on projects demonstrating European solidarity around the world. From its contentious and complex beginnings in the post-war chambers of Strasbourg to its current status as an icon of unity, the story of the flag with twelve gold stars is, in essence, the story of modern Europe's ongoing effort to define and celebrate its shared identity in diversity.
Photo from: Freepik



