Re: I wonder
'But putting the word "modify" in there - implies that you haven't thought things through. In the end, there has to be a straight yes-or-no vote.'
I think the A/C has thought things through.
If what's presented is unacceptable to those who have to ratify it then they say "no". The whole purpose of negotiation is to avoid that by modifying drafts until they are mutually acceptable and that isn't going to work unless the legislatures have an input, however informally. The legislatures are being presented with a fait accompli. The chances that at least one of them is going to find it unacceptable is pretty high.