Europeanising European Public Spheres
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STUDY Requested by the AFCO committee Europeanising European Public Spheres Policy Department for Citizens’ Rights and Constitutional Affairs Directorate-General for Internal Policies EN PE 654.628 - June 2020 Europeanising European Public Spheres Abstract This study, commissioned by the European Parliament’s Policy Department for Citizens’ Rights and Constitutional Affairs at the request of the AFCO Committee, provides a brief overview of the academic debates on Europeanisation as well as contestation and politicisation of the EU and European integration. Against this background, it focuses on the European public sphere(s), in particular those based on the media and parliaments. The study further discusses current reform proposals aiming to Europeanise the European elections and concludes with recommendations on increasing the legitimacy of the European Union. This document was requested by the European Parliament's Committee on Citizens' Rights and Constitutional Affairs. AUTHORS Dr, Katrin Auel, Institut fr Hhere Studien – Institute for Advanced Studies (IHS), Vienna Dr. Guido Tiemann, Institut fr Hhere Studien – Institute for Advanced Studies (IHS), Vienna ADMINISTRATOR RESPONSIBLE Eeva PAVY EDITORIAL ASSISTANT Fabienne VAN DER ELST LINGUISTIC VERSIONS Original: EN ABOUT THE EDITOR Policy departments provide in-house and external expertise to support EP committees and other parliamentary bodies in shaping legislation and exercising democratic scrutiny over EU internal policies. To contact the Policy Department or to subscribe for updates, please write to: Policy Department for Citizens’ Rights and Constitutional Affairs European Parliament B-1047 Brussels Email: [email protected] Manuscript completed in June 2020 © European Union, 2020 This document is available on the internet at: http://www.europarl.europa.eu/supporting-analyses DISCLAIMER AND COPYRIGHT The opinions expressed in this document are the sole responsibility of the authors and do not necessarily represent the official position of the European Parliament. Reproduction and translation for non-commercial purposes are authorised, provided the source is acknowledged and the European Parliament is given prior notice and sent a copy. © Cover image used under licence from Shutterstock.com. Europeanising European Public Spheres CONTENTS LIST OF ABBREVIATIONS 5 LIST OF FIGURES 6 LIST OF TABLES 6 EXECUTIVE SUMMARY 7 Introduction 7 Europeanisation, Politicisation and Democratic Legitimacy 7 The European Public Sphere(s) 8 Europeanisation of the European Elections? 9 The Spitzenkandidaten Process and the Introduction of Transnational Lists 9 Recommendations (Selection) 11 INTRODUCTION 13 THE CONCEPT OF EUROPEANISATION 17 2.1. The Problem of Defining Europeanisation 17 2.2. Vertical Mechanisms of Europeanisation 19 2.2.1. Goodness of Fit 20 2.2.2. Political Opportunity Structure and Regulatory Competition 20 2.3. Horizontal Mechanisms and Soft Framing 21 2.4. Europeanisation of Politics – A Politicisation of the EU? 22 2.4.1. Europeanisation as Growing Salience and Contestation 22 2.4.2. Europeanisation and Politicisation 27 THE (EUROPEAN) PUBLIC SPHERE 31 3.1. What Is the Public Sphere? 31 3.2. Who Ought to Participate in the Public Sphere? 32 3.2.1. Liberal Representative Democracy 32 3.2.2. Participatory Democracy 34 3.2.3. Deliberative /Discursive democracy 35 3.2.4. Functions of the Public Sphere 36 3.3. Is There a European Public Sphere? 37 3.4. The Media as Infrastructure and Embodiment of the (European) Public Sphere 38 3.4.1. (Pan-)European Media 39 3.4.2. Europeanisation of National Media 41 3.4.3. A Spiral of Euroscepticism? The Impact of Europeanised Media Coverage 44 3.4.4. Europeanised Media Coverage of the Covid-19 Pandemic 47 PE 654.628 3 IPOL | Policy Department for Citizens’ Rights and Constitutional Affairs 3.5. Parliaments as Europeanised Public Spheres 49 3.6. Relationship Between Strong and Weak Publics: Media Coverage of Parliaments in EU Affairs 53 3.6.1. National Parliaments In The Media 54 3.6.2. News Coverage of the European Parliament 55 3.6.3. Interparliamentary Cooperation in the Media 58 3.7. The cultural European public sphere 59 EUROPEANISATION OF THE EP ELECTORAL PROCESS – FROM SECOND- TO FIRST-ORDER ELECTIONS? 61 4.1. The Established Wisdom: Second-Order Elections 61 4.2. Bringing Europe Back In: EU Issue Voting 64 4.3. Party Signals and European Election Manifestos 68 THE EP ELECTION 2019: EUROPEANISED CAMPAIGNS? 71 5.1. Parliament Proposals on Electoral Reform 71 5.2. Implementation of Parliament Proposals within the Member States 73 5.2.1. Ballot papers 74 5.2.2. Visibility of the European Parties on Campaign Material 79 5.3. Finally a European Election? 81 5.4. The 2019 Campaign in the Media 84 5.5. #EP2019 - A Campaign fought on Social Media 88 RISE AND FALL OF THE SPITZENKANDIDATEN 95 6.1. Dimensions of Evaluation 96 6.1.1. Effects on Voter Turnout 96 6.1.2. Personalisation of European Elections 98 6.1.3. Strengthening the Electoral Connection 101 6.1.4. Europeanisation of EP Campaigns and Politics 101 6.2. The Fall of the Spitzenkandidaten in 2019 102 EUROPEANISING THE EUROPEAN PARLIAMENT’S ELECTIONS THROUGH TRANS-NATIONAL LISTS? 106 7.1. Electoral Engineering and the Construction of Party Lists 106 7.2. A Failed Attempt 109 7.3. Open Lists and the Intra-Party Dimension 110 POLICY RECOMMENDATIONS 112 REFERENCES 121 4 PE 654.628 Europeanising European Public Spheres LIST OF ABBREVIATIONS ACRE Alliance of Conservatives and Reformists in Europe ALDE Alliance of Liberals and Democrats for Europe COSAC Conférence des Organes Parlementaires Spécialisés dans les Affaires de l'Union des Parlements de l'Union Européenne CWP Commission (annual) Work Programme EC European Community EP European Parliament EPP (Group of the) European People's Party (Christian Democrats) ESM Early Warning Mechanism ESS European Election Study EU European Union Greens/EFA The Greens/European Free Alliance GUE/NGL European United Left - Nordic Green Left MEP Member of the European Parliament MP Member of Parliament PES Party of European Socialists S&D Group of the Progressive Alliance of Socialists and Democrats in the European Parliament SOE Second-Order-Election TEU Treaty of the European Union PE 654.628 5 IPOL | Policy Department for Citizens’ Rights and Constitutional Affairs LIST OF FIGURES Figure 1: The European Political Space 65 Figure 2 Relative Shares of Campaign Messages According to the Main Dimension by Member State 82 Figure 3: Party with largest number of campaign posts on Facebook per member state 89 Figure 4: Sources for Political News 92 Figure 5: Share of respondents using Facebook as a source for political news 2018/19 93 Figure 6: Party with most user engagement on Facebook in each member state 94 Figure 7: Turnout at EP Elections 1979 - 2019 97 LIST OF TABLES Table 1: Comparison Findings on Legal Provisions re. European Party Names and/or Logos on Ballot76 Table 2: Parties on Whose Campaign Posters the European Party or EPG Logo Could Be Identified 80 Table 3: Top 25 National Parties in Terms of Amount Spent on Political Facebook Advertisements 90 Table 4: Correct Identification of Spitzenkandidaten Supporting European Parties 99 6 PE 654.628 Europeanising European Public Spheres EXECUTIVE SUMMARY Introduction For a long time, the European project drew its legitimacy from its capacity to solve problems effectively, and the process of integration was largely accompanied by what Leon N. Lindberg and Stuart A. Scheingold termed the ‘permissive consensus’: despite earlier periods of increasing contestation, European integration was generally based on a broad consensus across the political mainstream on its desirability, and citizens permitted their political representatives to pursue this course without much interference. Over time, however, the twin processes of increasing European integration and growing Europeanisation of the member states have gone hand in hand with a decrease in public support for the European Union (EU) and a growing politicisation of the integration project. The alleged consensus gave way to something that Liesbet Hooghe and Gary Marks labelled a "constraining dissensus": European integration has become a far more salient, controversial and contested issue, and political parties and issue entrepreneurs try to mobilise and exploit related concerns for their electoral benefit. The key diagnosis presented by eminent scholars such as Simon Hix was that EU politics had for decades pretended that ‘real’ politics did not exist in Brussels and thereby refused to address pivotal and salient political differences, political debates, and divergent political concepts within a wider and deeper Europe. Against this background, the aim of the study is two-fold. The first aim is to provide an overview of the related academic debates on Europeanisation, the contestation and politicisation of the EU and EU integration as well as on the European public sphere. The second aim of the study is to present and discuss current reform proposals specifically aimed at a Europeanisation of the elections to the European Parliament (Parliament). Europeanisation, Politicisation and Democratic Legitimacy Within political science, Europeanisation is most frequently conceptualised as a top-down or horizontal process through which EU rules and procedures, but also norms, ideas and routines impact domestic institutions and policies. A second, very broad, field deals with Europeanisation from a different perspective, namely with the