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Regional Autonomy Movements in Europe: National Governments and the Eu

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Regional Autonomy Movements in Europe: National Governments and the Eu REGIONAL AUTONOMY MOVEMENTS IN EUROPE: NATIONAL GOVERNMENTS AND THE EU BY EUGENIE MELAMED THESIS Submitted in partial fulfillment of the requirements for the degree of Master of Arts in European Union Studies in the Graduate College of the University of Illinois at Urbana-Champaign, 2019 Urbana, Illinois Advisers: Neil Vander Most Konstantinos Kourtikakis ABSTRACT This thesis investigates whether the success of a regional autonomy movement within a nation state belonging to the European Union (EU) is determined by the actions of the national government or activities on behalf of the autonomy within the EU. Case studies are made of the autonomy movements in the Åland Islands, Catalonia, Scotland and Flanders, and the results are compared through a matrix typology. The level of autonomy of a region is determined by its “independent fiscal ability,” defined as the region’s ability to raise revenues or to receive automatic transfer payments from the national government. The actions of a central government affecting the region’s level of autonomy are defined as those that affect the region’s independent fiscal ability. Activities within the EU on behalf of a region’s autonomy are defined to include the region’s own paradiplomatic activities at the EU as well as actions of EU institutions on behalf of that autonomy. These indicators are generalizable and can be applied to all regional autonomies in nations belonging to the EU. It is found that the success of a regional autonomy movement is determined by the actions of a national government and not the activities on behalf of the region’s autonomy within the EU. The results have implications in the understanding of the EU’s three-tiered system of federalism. ii ACKNOWLEDGEMENTS Thank you to my wonderful advisors for their endless commitment to pushing me to make my thesis the absolute best it can be. I could not have done it without you. iii To my mom and dad iv TABLE OF CONTENTS CHAPTER 1: INTRODUCTION........................................................................................1 CHAPTER 2: LITERATURE REVIEW.............................................................................4 CHAPTER 3: THEORY....................................................................................................17 CHAPTER 4: TYPOLOGY...............................................................................................23 CHAPTER 5: METHODOLOGY.....................................................................................28 CHAPTER 6: HYPOTHESES...........................................................................................41 CHAPTER 7: ÄLAND ......................................................................................................43 CHAPTER 8: CATALONIA.............................................................................................54 CHAPTER 9: SCOTLAND...............................................................................................71 CHAPTER 10: FLANDERS .............................................................................................82 CHAPTER 11: DISCUSSION...........................................................................................96 CHAPTER 12: CONCLUSION ......................................................................................104 REFERENCES ................................................................................................................108 v CHAPTER 1: INTRODUCTION A major issue confronting Europe today is the relationship of regions within nations to national governments. It has been estimated that throughout Europe, there are 100 movements in 29 countries that are seeking either greater autonomy within the framework of an existing nation state or complete national independence (Campanella). The emergence of the European Union (EU) as a true supranational body has given a new option to autonomy movements in promoting their cause. As was always the case, they can work for autonomy on the national level by seeking to persuade national governments to expand regional governmental powers. A new option available to regional autonomy movements is to work within the EU and its institutions to promote the cause of their autonomy. As many governmental competences are shifted from the national to the European level, and as the EU increasingly gains the stature of a major governmental entity in its own right, the question arises whether active participation by regional autonomy movements in EU institutions is an effective strategy on their part. This thesis will attempt to answer this question by examining four separate European autonomies, those of the Åland Islands (Åland), Catalonia, Scotland and Flanders. As will be described in detail below, each of these autonomies presents a separate situation in terms of the attitude of the national government toward granting a greater level of regional autonomy and the activity within the EU on behalf of that autonomy. Based on evidence derived from the comparative experiences of these four regions, the question is addressed whether the success of an autonomy movement is dependent on the policies of the national government, on activities within the EU, or on both. The thesis begins with a literature review that explores the concept of autonomy as it has been developed in previous scholarly studies. Additionally, the literature review examines previous literature that 1 distinguishes the EU’s complex, three-tier federal structure with the two-tier federal structure of nation states and hypothesizes how this three-tier structure may be supportive of regional autonomy movements. A theoretical section follows. The first part of this section defines the key terms that are essential to the following discussion. Most critically, the thesis develops a measurable test of the degree of autonomy of a region that is based on the degree of a region’s budgetary control. This test has general application and can be used effectively regardless of the specific characteristics of a regional autonomy. A typology is then developed for classifying different autonomy movements within the EU in terms of two basic criteria: 1) the support or opposition of the national government to greater autonomy for the region; 2) activities within the EU relating to the autonomy movement. The four case studies are matched to each element of this typology. Each of these cases presents a separate combination of regional activity or inactivity within EU institutions, and of activity or inactivity within EU institutions. This discussion is followed by an explanation of the methodology used. The purpose of the methodology is to reach testable conclusions as to the role of the EU, as it is currently structured, in influencing autonomy movements. In furtherance of this purpose, the time frame selected covers the approximately decade-long period following the signing of the Lisbon Treaty in 2009. Source materials are primarily limited to governmental sources, available in English and reliable explanations of those sources. The indicators used seek to determine two basic facts for each case studied: First, whether the level of autonomy has increased during the time period considered; and second, whether there has been activity on behalf of the region’s autonomy within the EU. 2 The theoretical section concludes with the presentation of two alternative hypotheses that are tested in the remainder of the thesis. Under the first hypothesis, the actions of a nation state are determinative for the success of a regional autonomy movement. Under the second hypothesis, it is the activity on behalf of the region within the EU that is determinative in this regard. The four case studies are then presented. For each case, there is an introductory section that puts recent regional developments in a longer historical context so as to provide a better perspective on the present situation. Detailed evidence is then presented that answers the two basic questions of whether the region’s level of autonomy has grown and whether there has been activity on behalf of that autonomy within the EU. A summary of results considers which of the above two hypotheses is confirmed by the evidence presented. It is found that only one of the alternative hypotheses fits the recent historical facts presented. Additionally, the summary of results presents ideas on how the present study can be extended to encompass additional autonomies as well as future developments within the EU. As will be examined in detail below, the common thread in all of the cases examined here is that the EU leadership still views the EU as a treaty of nations rather than a union of its citizens, and for this reason consistently defers on matter of autonomy to the interests of nation states. 3 CHAPTER 2: LITERATURE REVIEW The present literature review is divided into three parts. It begins with a discussion of the meaning of “autonomy” as previous scholars have attempted to define it. This discussion is a prerequisite to the entire consideration of regional autonomies in the remainder of the thesis. The review then proceeds to literature addressing the EU’s three-tier federal structure and its potential importance in fostering autonomy movements. Finally, this section reviews primary EU source materials, including provisions of the Treaty of European Union (TEU), statements of EU officials and a landmark decision of the European Court of Justice that have bearing on the status of autonomous movements under this three-tier federal
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