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A Comparative Analysis of Influencing Factors on Organizational Change of the European Commission

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A Comparative Analysis of Influencing Factors on Organizational Change of the European Commission Diplomarbeit Management reforms in international organizations A comparative analysis of influencing factors on organizational change of the European Commission Barbara Heißerer (01/505269) 1.Gutachter 2.Gutachter Prof. Christoph Knill Prof. Rüdiger Klimecki Universität Konstanz, den 23. April 2008 Fachbereich Politik- und Verwaltungswissenschaft Summary This present comparative analysis addresses the question: which influencing factors affect the successful or failed implementation of administrative reforms in the European Commission? For this purpose, I conducted a historical comparison of the Commission’s reform attempts be- tween 1952 and 2004. Facing a lack of theoretical understanding of managerial reforms at the international level, this study aims at contributing to uncover theoretical explanations of administrative reforms in in- ternational organizations which the European Commission is a case of. Thus, this study gives an overview of theoretical accounts representing possible paths for studying the research ob- ject. The reviewed theoretical background includes three threads of literature: managerial re- form in international organizations, public sector reform and change management in the pri- vate sector. Following an exploratory logic, a factorial scheme of 15 potential influencing factors is devel- oped on the basis of these theoretical accounts. This analytical frame places interactions of key actors center stage and applies this approach to analyzing seven successful and three failed reform initiatives. Three out of the seven modernization initiatives have note been researched until this study. To answer the research question, the individual cases of modernization were compared and their success or failure was linked to influencing factors. Thereby, seven factors were identified as factors directly affecting the success or failure of formal implementation. Formulating theoretical assumptions on these 'success factors' of managerial reforms marks an important step toward theorizing managerial reforms in the European Commission and other international organizations. Table of Contents 1 Introduction......................................................................................... 1 2 Literature review.................................................................................. 5 2.1 Literature on the administrative development ................................................... 6 2.2 Literature on the reform efforts ........................................................................ 7 2.3. Research gaps to be addressed ....................................................................... 8 3 Theoretical background...................................................................... 11 3.1 Management reforms in international organizations ....................................... 12 3.2 Public Sector Reform Literature....................................................................... 16 3.2.1. A historic institutionalist perspective........................................................ 17 3.2.2 Policy dynamics and Policy change .......................................................... 18 3.2.2.1 John Kingdon’s model ...................................................................... 18 3.2.2.2 Baumgartner and Jones .................................................................... 19 3.2.2.3 Barzelay and Gallego’s Institutional Processualism.............................. 20 3.3 Change management .................................................................................... 21 4 Analytical framework ......................................................................... 24 4.1 Scheme of candidate influencing factors......................................................... 24 4.1.1 Stakeholder perspective........................................................................... 24 4.1.2 Factorial scheme...................................................................................... 24 4.2 Object of Research......................................................................................... 28 4.3 Methodology................................................................................................. 29 4.3.1 Within-case Comparison.......................................................................... 29 4.3.2 Unit of Analysis ....................................................................................... 30 4.3.3 The method of structured focused comparison......................................... 30 4.4 Data.............................................................................................................. 31 4.5 Variables ....................................................................................................... 32 4.5.1 The dependent variable........................................................................... 32 4.5.1 The independent variable ........................................................................ 32 4.6 Conceptualization .......................................................................................... 32 5 European administration and reform initiatives ................................... 35 5.1 The origin of the European Commission ......................................................... 35 5.1.1 The High Authority of the ECSC ............................................................... 36 5.1.2 The European Commission of the EEC...................................................... 38 5.1.3 The European Commission of the Euratom .............................................. 40 5.1.4 The Merger Treaty and the single European Commission.......................... 40 5.2 Reform initiatives of the European Commission............................................... 42 5.2.1 The reform initiative under President Hallstein of the EEC ......................... 43 5.2.2 The reform initiative under President Rey ................................................. 48 5.2.3 The reform initiative under President Ortoli .............................................. 53 5.2.4 The reform initiative under President Jenkins............................................ 58 5.2.5 The reform initiative under President Delors ............................................. 62 5.2.6 The reform initiative under President Santer............................................. 67 5.2.7 The reform initiative under President Prodi............................................... 71 5.3 Comparing the reform initiatives..................................................................... 78 5.3.2 Successful reform initiatives ..................................................................... 80 5.3.3 Unsuccessful reform initiatives ................................................................. 82 5.3.4 Examined factors without straightforward pattern.................................... 85 5.3.5 Shifting the attention from implementation to the scope.......................... 88 6 Conclusions and Outlook.................................................................... 90 6.1 Answering the research question ................................................................... 90 6.1.1 Crucial influencing factors ........................................................................ 90 6.1.2 Added value of this research ................................................................... 92 6.2 Outlook......................................................................................................... 94 List of relevant professionals.................................................................. 97 References of academic accounts .......................................................... 99 References of documents of European institutions ............................... 105 Annex................................................................................................. 117 Index of Tables Table 1: Analytical scheme of potentially influencing factors.....................................27 Table 2: Documents on Modernization during the presidency of Hallstein ................43 Table 3: Overview of observations on reform initiative under Hallstein......................48 Table 4: Documents on Modernization during the presidency of Rey........................48 Table 5: Overview of observations on reform initiative under Rey.............................52 Table 6: Documents on Modernization during the presidency of Ortoli.....................53 Table 7: Overview of observations on reform initiative under Ortoli..........................58 Table 8: Documents on Modernization during the presidency of Jenkins ..................58 Table 9: Overview of observations on reform initiative under Jenkins .......................61 Table 10: Documents on Modernization during the presidency of Delors..................62 Table 11: Overview of observations on reform initiative under Delors.......................66 Table 12: Documents on Modernization during the presidency of Santer..................67 Table 13: Overview of observations on reform initiative under Santer.......................71 Table 14: Documents on Modernization during the presidency of Prodi ...................71 Table 15: Overview of observations on reform initiative under Prodi.........................77 Table 16: Comparison of observed values of seven investigated cases ......................79 Table 17: Observed regularities of successful reform initiatives..................................80 Table 18: Observed regularities of unsuccessful reform initiatives..............................83
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