Constructing a Policy-Making State?: Policy Dynamics in the EU

435 Pages·2012·1.625 MB·English

by  Jeremy Richardson

Constructing a Policy-Making State?
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Constructing a Policy-Making
State?
Policy Dynamics in the EU
Edited by Jeremy Richardson
1
3
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Preface
As a young graduate student I was told that what I was studying was called
‘publicadministration’,whatseemedtometobeaterriblydullsubject.Iwasa
public administrationistbecauseIwasinterested in‘whatgovernmentsdid’.
However,reliefwassoonathand.Attendingmyfirstinternationalconference
(well,itwasinScotland),myfriendLewisGunnintroducedmetoanAmerican
academicas‘JeremyRichardson.Hestudiespublicpolicy.’Afterwards,Iasked
Lewis,‘Whatisthispublicpolicystuffthen?’Hereplied,‘Oh,itisalltherage
in America.’ That seemed good enough to me then and I think it is good
enoughnow!
Ofcourse,Iwasnotinterestedinadministration,butIwasinterestedinwhat
happened in political systems before administration took place, namely how
public policy was made. Where did it come from, who made it, what influ-
ences were brought to bear, why did it change over time? Eventually,
Irealized,ofcourse,thatoneaspectofadministration,theimplementationof
publicpolicy,wasanimportantandexcitingtopic,havingmuchtodowith
thepolicychangeprocess.Indeed,thepolicy-makingprocessisacontinuous,
never-endingprocess.Aboveallitisatthecentreofwhatthestatedoes.States
churn out masses of public policy in their attempt to manage societies, and
societiesmakemoreandmoredemandsonstatesto‘solve’societalproblems.
Moreover,manyoftheseproblemsareatleastregionalinnature,andincreas-
inglyglobal.Thus,asIwrite,theEuropeanUnionisinthegripofadebtcrisis
which can be solved only by collective action at the regional level. This
regional crisis is also a global crisis. Thus, living in New Zealand, I will not
beimmunetotheeventsinEurope.Suchcrisespresenthugechallengestothe
autonomyofconventionalnationstates.Theycannotsolveproblemswithout
somelossofautonomy.
TheEUisanespeciallyinterestingcaseforpublicpolicyanalystsasthereis
obviouslyagradualdriftofpolicy-makingfunctionstoaregionallevel.When
I started studying British public policy in 1966, the locus of public policy
making was firmly in London. The laws under which I lived were British
laws.Today,ahugeproportionofthoselawsareEUlaws.Somehow,afunda-
mental shift has taken place (still not accepted by the majority of British
Preface
citizens,itmustbesaid!),thoughnotinallpolicyareas.Thecentralpurposeof
thisvolumeistoanalysetheseeminglyinexorableprocessbywhichthelocus
ofdecision-makinghaschangedtotheEuropeanlevel.Wedothisbyaseries
of sectoral case studies employing a variety of theoretical and conceptual
approaches.Thus,wehavedeliberatelyavoidedadoptingonecommontheo-
reticalframework,largelybecausewedonotbelievethatthephenomenonof
Europeanization(asdefinedinchapter1)canbeexplainedbyrelyingexclu-
sivelyononetheoreticalapproach,butalsobecausewebelievethatisituseful
toseehowbroadtheconceptualtoolkitcanbe.
Thebookbringstogetherasuperbgroupofresearchers,towhomIowean
enormous debt, not just for their perceptive insights into the processes by
which power shifts to Brussels (or remains anchored at member state level)
but,moreimportantly,fortheirenormouspatienceandpersonalsupportover
thepastdifficultyear.Iwillnotburdenreaderswiththedetailsofthesetbacks
alongthewaytothemuchdelayedcompletionofthisvolume.Sufficetosay
thatChristchurchhassufferedtwomajorearthquakessinceSeptember2010,
andahugenumberofsevereaftershocks:anunusualsetofcircumstancesin
whichtocompleteabook.Throughoutthisverystressfulperiod,Ihavebeen
privilegedtoworkwithagroupofverycaringcontributors.Theirconcernfor
meandmyfamilyhasbeensomethingquitespecial.
Christchurch,NZ,November2011
vii
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Contents
ListofContributors xi
ListofFigures xiii
ListofTables xiv
PARTI 1
1. SupranationalStateBuildingintheEuropeanUnion 3
JeremyRichardson
2. Agenda-SettingandtheFormationofanEUPolicy-MakingState 29
SebastiaanPrincen
PARTII 47
3. CompetitionPolicy:TheEvolutionofCommissionControl 49
MichaelBlauberger
4. FromtheTreatyofParistoGlobalization:Steelandits‘Escape’
fromEUGovernance 69
GeoffreyDudleyandJeremyRichardson
5. GlobalizationandInternalPolicyDynamicsintheReformof
theCommonAgriculturalPolicy 88
CarstenDaugbjerg
6. EnvironmentalPolicy:GoverningbyMultiplePolicyInstruments? 104
AndrewJordan,DavidBenson,RüdigerWurzel,andAnthonyZito
7. PolicyEntrepreneurship,GroupMobilization,andthe
CreationofaNewPolicyDomain:Women’sRightsand
theEuropeanUnion 125
SoniaMazey
PartIII 145
8. InchingTowardsaCommonEnergyPolicy:Entrepreneurship,
Incrementalism,andWindowsofOpportunity 147
BurkardEberlein