Term of Reference No. 3 explains "....the Commission was forced to the conclusion that the present multiplicity of competing Trade Unions (the existence of which constitutes a serious problem for the Trade Union Movement) has been encouraged by the facility with which unnecessary, undersirable and superfluous Unions can secure official recognition, through affiliation to the Trade Union Congress and, still more so, to the local Trades' and Workers' Councils. A small disgruntled minority breaks away from an affiliated Union, very often for reasons which are extremely petty or merely personal, but generally unjustified".