fifteen into one art 19/11/2002 9:14 am Page 1 EPRU Fifteen into one European Series Fifteen into one? Policy The European Union and its member states Research Unit Series The European Union and the roles of member states is one of the major topics of political debate and academic discourse. The evolution of the political system in Brussels and the developments within the individual member states promise new insights into the European integration process. This book provides a country-by- Fifteen country analysis of how European policy is made and applied in the member states. Its central focus is the involvement of national institutions in European policy-making: governments, parliaments, sub-national governments, the courts and public administrations. Who participates at which stages of the European Union’s policy cycle and how do national institutions and non-state actors interact into one? and fit into the Union’s system? The contributors show how member states have adapted their institutional structures in different ways to European integration, especially since the Maastricht The European Treaty. The editors argue that the extent and intensity of institutional interaction between the EU and its member states have led to a ‘system of institutional fusion’. Wessels, Maurer & Mittag Maurer Wessels, This timely book is the most comprehensive study yet of European policy-making Union and its at the national level and is aimed at scholars of integration studies and comparative politics. Professor Wolfgang Wessels is Jean Monnet Chair of Political Science at the member states University of Cologne and is also Chairman of the Trans European Policy Studies Association (T.E.P.S.A.) Andreas Maurer is Research Associate in Political Sciences at the University of Cologne and at the Trans European Policy Studies Association (T.E.P.S.A.) Jürgen Mittag is Research Associate in Political Sciences at the University of Cologne (eds) ISBN 0 7190 5849 X Edited by Wolfgang Wessels, Andreas Maurer 9 780719 058493 & Jurgen Mittag 2444Prelims 3/12/02 2:00 pm Page i Fifteen into one? 2444Prelims 3/12/02 2:00 pm Page ii European Policy Research Unit Series Series Editors: Simon Bulmer, Peter Humphreys and Mick Moran The European Policy Research Unit Series aims to provide advanced text- books and thematic studies of key public policy issues in Europe. They con- centrate, in particular, on comparing patterns of national policy content, but pay due attention to the European Union dimension. The thematic studies are guided by the character of the policy issue under examination. The European Policy Research Unit (EPRU) was set up in 1989 within the University of Manchester’s Department of Government to promote research on European politics and public policy. The series is part of EPRU’s effort to facilitate intellectual exchange and substantive debate on the key policy issues confronting the European states and the European Union. Titles in the series also include: The governance of the Single European Market Kenneth Armstrong and Simon Bulmer The politics of health in Europe Richard Freeman Immigration and European integration Andrew Geddes Mass media and media policy in Western Europe Peter Humphreys The regions and the new Europe Martin Rhodes (ed.) The rules of integration Gerald Schneider and Mark Aspinwall Political economy of financial integration in Europe Jonathan Story and Ingo Walter Extending European cooperation Alasdair R. Young Regulatory politics in the enlarging European Union Alasdair Young and Helen Wallace 2444Prelims 3/12/02 2:00 pm Page iii Fifteen into one? The European Union and its member states Edited by Wolfgang Wessels, Andreas Maurer and Jürgen Mittag Manchester University Press Manchester and New York distributed exclusively in the USA by Palgrave 2444Prelims 3/12/02 2:00 pm Page iv Copyright © Manchester University Press 2003 While copyright in the volume as a whole is vested in Manchester University Press, copyright in individual chapters belongs to their respective authors. This electronic version has been made freely available under a Creative Commons (CC-BY-NC- ND) licence, which permits non-commercial use, distribution and reproduction provided the author(s) and Manchester University Press are fully cited and no modifications or adaptations are made. Details of the licence can be viewed at https://creativecommons.org/licenses/by-nc-nd/3.0/ Published by Manchester University Press Oxford Road, Manchester M13 9NR, UK and Room 400, 175 Fifth Avenue, New York, NY 10010, USA www.manchesteruniversitypress.co.uk British Library Cataloguing-in-Publication Data A catalogue record for this book is available from the British Library Library of Congress Cataloging-in-Publication Data applied for ISBN 0 7190 5849 X paperback First published 2003 1009080706050403 10987654321 Typeset in Sabon by Action Publishing Technology Ltd, Gloucester Printed in Great Britain by Bookcraft (Bath) Ltd, Midsomer Norton 2444Prelims 3/12/02 2:00 pm Page v Contents List of figures page vii List of tables ix Notes on contributors xi Preface and major findings: the anatomy, the analysis and the assessment of the ‘beast’ xiii List of abbreviations and acronyms xviii I Introduction 1 1 The European Union and Member States: analysing two arenas over time Wolfgang Wessels, Andreas Maurer and Jürgen Mittag 3 2 The European Union matters: structuring self-made offers and demands Andreas Maurer and Wolfgang Wessels 29 II Member States and the European Union 67 3 Belgium: Europeanisation and Belgian federalism Christian Franck, Hervé Leclercq and Claire Vandevievere 69 4 Denmark: in pursuit of influence and legitimacy Finn Laursen 92 5 Germany: fragmented structures in a complex system Andreas Maurer 115 6 Finland: smooth adaptation to European values and institutions Teija Tiilikainen 150 7 Greece: a never-ending story of mutual attraction and estrangement Nikos Frangakis and Antonios D. Papayannides 166 8 Spain: the emergence of a new major actor in the European arena Felipe Basabe Lloréns 184 2444Prelims 3/12/02 2:00 pm Page vi vi Contents 9 France: the European transformation of the French model Andrea Szukala 216 10 Ireland: modernisation via Europeanisation Brigid Laffan 248 11 Italy: progress behind complexity Flaminia Gallo and Birgit Hanny 271 12 Luxembourg: flexible and pragmatic adaptation Danielle Bossaert 298 13 The Netherlands: a former founding father in search of control Ben J.S. Hoetjes 315 14 Austria: domestic change through European integration Otmar Höll, Johannes Pollack and Sonja Puntscher-Riekmann 337 15 Portugal: one way to Europeanisation Maria João Seabra 355 16 Sweden: another awkward partner? Karl Magnus Johansson 369 17 The United Kingdom: between political controversy and administrative efficiency Kenneth A. Armstrong and Simon Bulmer 388 III Conclusion 411 18 The ‘One’ and the ‘Fifteen’? The Member States between procedural adaptation and structural revolution Jürgen Mittag and Wolfgang Wessels 413 Select bibliography 455 Index 459 2444Prelims 3/12/02 2:00 pm Page vii List of figures 1.1 Evolution of the European Union’s legislation in force 1983–98 page 6 2.1 Decision-making modes in the Council of Ministers, 1952–2001 (EC Treaty area), absolute numbers 35 2.2 Decision-making modes in the Council of Ministers, 1952–2001 (EC Treaty area), per cent 35 2.3 Decision-making procedures in the European Parliament/ Council, 1958–2001, absolute numbers 37 2.4 Decision-making procedures in the European Parliament/ Council, 1958–2001, per cent 37 2.5 Three steps towards communitarisation 38 2.6 The EC/EU policy-cycle, November 2001 40 2.7 Legal output of Council and Commission, per year, 1952–2000 44 2.8 European legislation in force, 1983–98 47 2.9 Productivity of the Council of Ministers, 1966–2000: legal acts per year against meetings per year 49 2.10 Parliamentary involvement in EC legislation, 1987–98: real use of procedural empowerments 50 2.11 Co-decision procedure, 1991–2000: time periods between Commission proposal and final adoption of the legal act, December 2000 52 3.1 The national level of European decision-making – Belgium 74 4.1 The national level of European decision-making – Denmark 97 5.1 The national level of European decision-making – Germany 118 6.1 The national level of European decision-making – Finland 154 7.1 The national level of European decision-making – Greece 170 8.1 The national level of European decision-making – Spain 189 9.1 The national level of European decision-making – France 233 10.1 The national level of European decision-making – Ireland 254 11.1 The national level of European decision-making – Italy 275 2444Prelims 3/12/02 2:00 pm Page viii viii List of figures 12.1 The national level of European decision-making – Luxembourg 302 13.1 The national level of European decision-making – The Netherlands 321 14.1 The national level of European decision-making – Austria 341 15.1 The national level of European decision-making – Portugal 359 16.1 The national level of European decision-making – Sweden 373 17.1 The national level of European decision-making – United Kingdom 393 18.1 Models of Member States’ adaptation 414 18.2 Models of ‘policy co-ordination’ 426 18.3 Models of adaptation strategies 442 2444Prelims 3/12/02 2:00 pm Page ix List of tables 2.1 Legal output per year of Commission, Council and Parliament, 1952–98, according to policy areas page 46 2.2 ‘Real’ use of QMV, 1985–99 47 3.1 Cases that are being or have been brought before the ECJ, 1993–98 85 4.1 Parliamentary representation of