OK. Your point is clearer now. But my understanding is that ARIN has no authority over transfers from a truly "legacy" (i.e., non-contracted) holder. If such a legacy holder wants to transfer to RIPE region without ARIN needs assessment, they can if RIPE allows it. ARIN will fuss and bluster about it, but so what?

The more important point is indeed the interaction between ARIN and RIPE.  It is the combination of RIPE being empty and ARIN still having a free pool that makes for an "intermediate" state, and makes it difficult to reconcile the goals of 2013-03 with the desire to make sure all inter-RIR transfers out of the ARIN region continue to be needs-based.

If the RIPE community thinks that eliminating needs justification bureaucracy is a higher priority than getting access to transfers of less-expensive legacy address space from the ARIN region (due to greater supply of underutilized addresses there), then I agree that passing 2013-03 would be appropriate.  But I would predict that doing so will prevent any implementation of inter-RIR transfers from the ARIN region to the RIPE region until after (possibly well after) ARIN's free pool is exhausted.

-Scott