The Administrative System of the European Union

  • Michael W. Bauer
  • Jarle Trondal
Part of the European Administrative Governance book series (EAGOV)

Abstract

This volume is a primer on the European Union (EU) administrative system. It offers a wide-ranging analysis, notably on how EU administrative capacities relate to pre-existing institutional constellations at global, national, and subnational levels of government, and contribute to a system transformation of existing (largely nation-state) administrative orders. The intellectual foundations of the endeavor lie in the fields of administrative sciences, organizational and institutional theories, and theories of decision-making and the policy-making process. This introductory chapter aims to set the stage regarding the core aims of the volume, scholarly relevance, and a research agenda. It attempts to develop a perspective of public administration as the core characteristics and elements of the EU’s emerging political system. We argue that analyzing the patterns and dynamics of the administrative capacities of the EU is essential in understanding how the EU shapes European public policy. Administrative capacities are thus not analyzed in isolation, but as structures that mobilize systematic bias in the production of public policy (Arellano-Gault et al., 2013, 154; Schattschneider, 1975).

Keywords

European Union Public Administration Administrative System Administrative Capacity European Union Institution 
These keywords were added by machine and not by the authors. This process is experimental and the keywords may be updated as the learning algorithm improves.

Preview

Unable to display preview. Download preview PDF.

Unable to display preview. Download preview PDF.

References

  1. Abélès, M. and Bellier, I. (1996) ‘La Commission Européenne: Du Compromis Culturel à la Culture Politique du Compromis’, Revue Française de Science Politique, 46, 431–456.CrossRefGoogle Scholar
  2. Andrews, R., Boyne, G. A., Meier, K. J., O’Toole Jr., L. J. and Walker, R. M. (2005) ‘Representative Bureaucracy, Organizational Strategy, and Public Service performance: An Empirical Analysis of English Local Government’, Journal of Public Administration Research and Theory, 15, 489–504.CrossRefGoogle Scholar
  3. Arellano-Gault, D., Demortain, D., Rouillard, C. and Thoenig, J.-C. (2013) ‘Bringing Public Organizations and Organizing Back In’, Organization Studies, 34(2), 145–167.CrossRefGoogle Scholar
  4. Ban, C. (2013) Management and Culture in an Enlarged European Commission. From Diversity to Unity? (Houndmills: Palgrave Macmillan).CrossRefGoogle Scholar
  5. Banducci, S. A. and Radaelli, C. M. (2008) ‘Bureaucratic Elites in the European Union: Socialization, Institutional Effects, and Policy Domains’, Paper presented at the ECPR Annual Conference, University of Exeter, 15–17 December 2008.Google Scholar
  6. Bartolini, S. (2005) Re-Structuring Europe: Centre Formation, System Building and Political Structuring Between the Nation State and the European Union (Oxford: Oxford University Press).CrossRefGoogle Scholar
  7. Bauer, M. W. (2001) A Creeping Transformation? The European Commission and the Management of EU Structural Funds in Germany (Dordrecht: Kluwer).CrossRefGoogle Scholar
  8. Bauer, M. W. (2012) ‘Tolerant to a Point: Attitudes to Organisational Change Within the European Commission’, Governance, 25, 485–510.CrossRefGoogle Scholar
  9. Bellier, I. (1995) ‘Une Culture de la Commission européenne? De la Rencontre des Cultures et du Multilinguisme des Fonctionnaires’, in Mény, Y., Muller, P. and Quermonne, J.-L. (eds.) Politiques Publiques en Europe (Paris: L’Harmattan), 49–60.Google Scholar
  10. Benz, A. (2004) Governance: Regieren in komplexen Regelsystemen (Wiesbaden: VS Verlag für Sozialwissenschaften).CrossRefGoogle Scholar
  11. Benz, A. (2012) ‘The European Union as a Loosely Coupled Multi-Level System’, in Enderlein, H., Wälti, S. and Zürn, M. (eds.) Handbook on Multi-Level Governance (Cheltenham: Edward Elgar), 214–226.Google Scholar
  12. Berlin, D., Pag, S. and Bourtembourg, C. (eds.) (1987) The European Administration (Maastricht: EAIP).Google Scholar
  13. Bevir, M. (2009) Key Concepts in Governance (Los Angeles: SAGE).Google Scholar
  14. Bevir, M., Rhodes, R. A. W. and Weller, P. (2003) ‘Traditions of Governance: Interpreting the Changing Role of the Public Sector’, Public Administration, 81, 1–17.CrossRefGoogle Scholar
  15. Börzel, T. A. (2002) States and Regions in the European Union: Institutional Adaptation in Germany and Spain (Cambridge: Cambridge University Press).Google Scholar
  16. Bozeman, B. (2013) ‘What Organization Theorists and Public Policy Researchers Can Learn from One Another: Publicness Theory as a Case-in-Point’, Organization Studies, 34(2), 169–188.CrossRefGoogle Scholar
  17. Cassese, S. (1987) ‘Divided Powers: European Administration and National Bureaucracies’, in Berlin, D., Pag, S. and Bourtembourg, C. (eds.) The European Administration (Maastricht: EAIP), 5–19.Google Scholar
  18. Cerny, C. G. (2006) ‘Restructuring the State in a Globalizing World: Capital Accumulation, Tanged Hierarchies and the Search for a New Spatio-Temporal Fix’, Review of International Political Economy, 13, 679–695.CrossRefGoogle Scholar
  19. Checkel, J. T. (2005) ‘International Institutions and Socialization in Europe’, International Organization, 59, 801–826.CrossRefGoogle Scholar
  20. Chiti, M. P. (2004) ‘Forms of European Administrative Action’, Law and Contemporary Problems, 68, 37–57.Google Scholar
  21. Christensen, T. and Laegreid, P. (2011) ‘Beyond NPM? Some Development Features’, in Christensen, T. and Laegreid, P. (eds.) The Ashgate Companion to New Public Management (Aldershot: Ashgate), 391–404.Google Scholar
  22. Cini, M. and Borragàn, N. P.-S. (2013) European Union Politics, Fourth Edition (Oxford: Oxford University Press).Google Scholar
  23. Cram, L. (1993) ‘Calling the Tune Without Paying the Piper? Social Policy Regulation: The Role of the Commission in European Community Social Policy’, Policy and Politics, 21(2), 135–146.CrossRefGoogle Scholar
  24. Curtin, D. and Egeberg, M. (2008) ‘Tradition and Innovation: Europe’s Accumulated Executive Order’, West European Politics, 31, 639–661.CrossRefGoogle Scholar
  25. Deutsch, K. W. et al. (1957) Political Community and the North Atlantic Area: International Organization in the Light of Historical Experience (Princeton: Princeton University Press).Google Scholar
  26. Dyson, K. H. F. (1980) The State Tradition in Western Europe (Oxford: Martin Robertson).Google Scholar
  27. Eberlein, B. and Grande, E. (2005) ‘Beyond Delegation: Transnational Regulatory Regimes and the EU Regulatory State’, Journal of European Public Policy, 12, 89–112.CrossRefGoogle Scholar
  28. Egeberg, M. (ed.) (2006) Multilevel Union Administration (London: Palgrave Macmillan).Google Scholar
  29. Egeberg, M. (2010) ‘L’administration de l’Union Europeenne: Niveaux Multiples et Construction d’un Centre’, Revue Francaise d’Administration Publique, 133, 17–26.CrossRefGoogle Scholar
  30. Egeberg, M. and Trondal, J. (2009) ‘National Agencies in the European Administrative Space: Government Driven, Commission Driven, or Networked?’, Public Administration, 87, 779–790.CrossRefGoogle Scholar
  31. Egeberg, M., Schaefer, G. F. and Trondal, J. (2003) ‘The Many Faces of EU Committee Governance’, West European Politics, 26, 19–40.CrossRefGoogle Scholar
  32. Eising, R. and Kohler-Koch, B. (1999) ‘Introduction: Network Governance in the European Union’, in Kohler-Koch, B. and Eising, R. (eds.) The Transformation of Governance in the European Union (London: Routledge), 3–13.Google Scholar
  33. Ekengren, M. (2002) The Time ofEuropean Governance (Manchester: Manchester University Press).Google Scholar
  34. Ellinas, A. A. and Suleiman, E. (2012) The European Commission and Bureaucratic Autonomy (Cambridge: Cambridge University Press).CrossRefGoogle Scholar
  35. Franchini, C. (2004) ‘European Principles Governing National Administrative Proceedings’, Law and Contemporary Problems, 68(1), 183–196.Google Scholar
  36. Franklin, M. N. and Scarrow, S. E. (1999) ‘Making Europeans? The Socializing Power of the European Parliament’, in Katz, R. S. and Wessels, B. (eds.) The European Parliament, the National Parliaments, and European Integration (Oxford: Oxford University Press), 45–60.CrossRefGoogle Scholar
  37. Frederickson, H. G. (2005) ‘Whatever Happened to Public Administration? Governance, Governance Everywhere’, in Ferlie, E., Lynn Jr., L. E. and Pollitt, C. (eds.) The Oxford Handbook of Public Management (Oxford: Oxford University Press), 282–304.Google Scholar
  38. Fukuyama, F. (2013) ‘What Is Governance?’, Governance, 26, 347–368.CrossRefGoogle Scholar
  39. Goetz, K. H. (2010) ‘The Temporal Dimension’, in Dyson, K. and Sepos, A. (eds.) Which Europe? The Politics of Differentiated Integration (Basingstoke: Palgrave), 67–81.Google Scholar
  40. Graziano, P. and Vink, M. P. (eds.) (2007) Europeanization: New Research Agendas (Houndmills: Palgrave Macmillan).Google Scholar
  41. Gulick, L. (1937) ‘Notes on the Theory of Organizations: With Special References to Government in the United States’, in Gulick, L. and Urwick, L. (eds.) Papers on the Science of Administration (New York: Institute of Public Administration, Columbia University), 1–46.Google Scholar
  42. Haas, E. (1958) The Uniting of Europe (Stanford: Stanford University Press).Google Scholar
  43. Haas, P. (1992) ‘Epistemic Communities and International Policy Coordination’, International Organization, 46(1), 1–35.CrossRefGoogle Scholar
  44. Habermas, J. (2012) The Crisis of the European Union: A Response (Oxford: Polity).Google Scholar
  45. Hanf, K. and Jensen, A.-I. (1998) Governance and Environment in Western Europe (Harlow: Longman).Google Scholar
  46. Hartlapp, M., Metz, J. and Rauh, C. (forthcoming) Which Policy for Europe? Power and Conflict Inside the European Commission (unpublished manuscript).Google Scholar
  47. Hayes-Renshaw, F. and Wallace, H. (1997) The Council of Ministers (New York: St. Martin’s Press).CrossRefGoogle Scholar
  48. Heidbreder, E. G. (2011) ‘Structuring the European Administrative Space: Policy Instruments of Multi-Level Administration’, Journal of European Public Policy, 18, 709–727.CrossRefGoogle Scholar
  49. Héritier, A. (1999) Policy Making and Diversity in Europe: Escape from Deadlock (Cambridge: Cambridge University Press).CrossRefGoogle Scholar
  50. Héritier, A., Kerwer, D., Knill, C., Lehmkuhl, D., Teutsch, M. and Douillet, A.-C. (2001) Differential Europe (Lanham: Rowman & Littlefield Publishers).Google Scholar
  51. Herrmann, R., Risse, T. and Brewer, M. B. (eds.) (2004) Transnational Identities. Becoming European in the EU (Lanham: Rowman & Littlefield Publishers).Google Scholar
  52. Hix, S. (2005) The Political System of the European Union, Second Edition (Houndmills: Palgrave Macmillan).Google Scholar
  53. Hofmann, H. C. H. and Turk, A. H. (eds.) (2006) EU Administrative Governance (Cheltenham: Edward Elgar).Google Scholar
  54. Hooghe, L. (2001) The European Commission and the Integration of Europe: Images of Governance (Cambridge: Cambridge University Press).Google Scholar
  55. Hooghe, L. (2005) ‘Several Roads Lead to International Norms, but Few via International Socialization: A Case Study of the European Commission’, International Organization, 59, 861–898.CrossRefGoogle Scholar
  56. Hooghe, L. and Marks, G. (2001) Multi-Level Governance and European Integration (New York: Rowman & Littlefield Publishers).Google Scholar
  57. Hooghe, L., Marks, G. and Schakel, A. H. (2010) The Rise of Regional Authority. A Comparative Study of 42 Democracies (London: Routledge).Google Scholar
  58. Joerges, C. (1999) ‘Bureaucratic Nightmare, Technocratic Regime and the Dream of Good Transnational Governance’, in Joerges, C. and Vos, E. (eds.) EU Committees: Social Regulation, Law and Politics (Oxford: Hart Publishing), 3–18.Google Scholar
  59. Joerges, C. and Neyer, J. (1997) ‘From Intergovernmental Bargaining to Deliberative Political Processes: The Constitutionalisation of Comitology’, European Law Journal, 3, 273–299.CrossRefGoogle Scholar
  60. Jones, E., Menon, A. and Weatherill, S. (2012) The Oxford Handbook of the European Union (Oxford: Oxford University Press).CrossRefGoogle Scholar
  61. Jørgensen, K. E., Pollack, M. A. and Rosamond, B. (eds.) (2007) Handbook of European Union Politics (London: Sage).Google Scholar
  62. Kassim, H., Peterson, J., Bauer, M. W., Connolly, S., Dehousse, R., Hooghe, L. and Thompson, A. (2013) The European Commission of the Twenty-First Century (Oxford: Oxford University Press).CrossRefGoogle Scholar
  63. Kjar, A. M. (2011) ‘Rhodes’ Contribution to Governance Theory: Praise, Criticism and the Future Governance Debate’, Public Administration, 89, 101–113.CrossRefGoogle Scholar
  64. Knill, C. (2001) The Europeanisation of National Administrations (Cambridge: Cambridge University Press).CrossRefGoogle Scholar
  65. Laffan, B., O’Donnell, R. and Smith, M. (1999) Europe’s Experimental Union: Rethinking Integration (London: Routledge).Google Scholar
  66. Larsson, T. and Trondal, J. (2006) ‘Agenda Setting in the European Commission: How the European Commission Structure and Influence the EU Agenda’, in Hofmann, C. H. and Turk, A. H. (eds.) EU Administrative Governance (Cheltenham: Edward Elgar), 11–43.Google Scholar
  67. Lewis, J. (2005) ‘The Janus Face of Brussels: Socialization and Everyday Decision Making in the European Union’, International Organization, 59, 937–971.CrossRefGoogle Scholar
  68. Lieberman, R. C. (2002) ‘Ideas, Institutions, and Political Order: Explaining Political Change’, American Political Science Review, 96, 697–712.CrossRefGoogle Scholar
  69. Marks, G. (1993) ‘Structural Policy and Multilevel Governance in the EC’, in Cafruny, A. W. and Rosenthal, G. G. (eds.) The State of the European Community: The Maastricht Debates and Beyond (Vol 2. Boulder, Colorado: Lynne Rienner), 391–410.Google Scholar
  70. Mayntz, R. (1999) ‘Organizations, Agents and Representatives’, in Egeberg, M. and Laegreid, P. (eds.) OrganizingPolitical Institutions (Oslo: Scandinavian University Press), 81–92.Google Scholar
  71. McDonald, M. (1997) ‘Identities in the European Commission’, in Nugent, N. (ed.) At the Heart of the Union: Studies of the European Commission (London: Macmillan), 27–48.Google Scholar
  72. Meyer-Sahling, J.-H. and Yesilkagit, K. (2011) ‘Differential Legacy Effects: Three Propositions on the Impact of Administrative Traditions on Public Management Reform in Europe East and West’, Journal of European Public Policy, 18, 311–322.CrossRefGoogle Scholar
  73. Niemann, A. (2006) Explaining Decisions in the European Union (Cambridge: Cambridge University Press).CrossRefGoogle Scholar
  74. Olsen, J. P. (1983) Organized Democracy (Bergen: Scandinavian University Press).Google Scholar
  75. Olsen, J. P. (2007) Europe in Search of Political Order (Oxford: Oxford University Press).Google Scholar
  76. Olsen, J. P. (2009) ‘EU Governance: Where Do We Go from Here?’ in Kohler-Koch, B. and Larat, F. (eds.) European Multi-Level Governance (Cheltenham: Edward Elgar), 191–209.Google Scholar
  77. Olsen, J. P. (2010) Governing Through Institution Building (Oxford: Oxford University Press).CrossRefGoogle Scholar
  78. Ostrom, V. (1999) ‘Polycentricity’, in McGinnis, M. D. (ed.) Polycentricity and Local Public Economies: Readings from the Workshop of Political Theory and Policy-Analysis (Michigan: University of Michigan Press), 119–138.Google Scholar
  79. Page, E. and Jenkins, B. (2005) Policy Bureaucracy: Government with a Cast of Thousands (Oxford: Oxford University Press).CrossRefGoogle Scholar
  80. Peters, B. G., Schroter, E. and von Maravic, P. (2013) ‘Representative Bureaucracy: Concept, Driving Forces, Strategies’, in von Maravic, P., Peters, B. G. and Schroter, E. (eds.) Representative Bureaucracy in Practice (Cheltenham: Edward Elgar), 1–18.CrossRefGoogle Scholar
  81. Peterson, J. (2008) ‘Enlargement, Reform and the European Commission: Weathering a Perfect Storm?’, Journal of European Public Policy, 15, 761–780.CrossRefGoogle Scholar
  82. Piattoni, S. (2010) The Theory of Multi-Level Governance (Oxford: Oxford University Press).CrossRefGoogle Scholar
  83. Pollack, M. A. (1998) ‘Constructivism, Social Psychology, and Elite Attitude Change: Lessons from an Exhausted Research Program’, Paper Presented at the Conference of Europeanists, 26 February — 1 March 1998, Baltimore, USA.Google Scholar
  84. Pollitt, C. (2010) ‘Simply the Best? The International Benchmarking of Reform and Good Governance’, in Pierre, J. and Ingraham, W. (eds.) Comparative Administrative Change and Reform: Lessons Learned (Montreal & Kingston: McGill-Queen’s University Press), 91–113.Google Scholar
  85. Pollitt, C. and Hupe, P. (2011) ‘Talking about Government: The Role of Magic Concepts’, Public Management Review, 13, 641–658.CrossRefGoogle Scholar
  86. Radaelli, C. M. (1999) Technocracy in the European Union (London: Longman).Google Scholar
  87. Reinhard, C. (2012) ‘The Return of the Financial Repression’, Centre for Economic Policy Research, available online at: http://www.cepr.org/pubs/dps/DP8947.asp.
  88. Rhodes, R. A. W. (1997) Understanding Governance: Policy Networks, Governance, Reflexivity and Accountability (Buckingham: Open University Press).Google Scholar
  89. Richardson, J.J. (1982) Policy Styles in Western Europe (Winchester: George Allen & Unwin).Google Scholar
  90. Risse-Kappen, T. (1996) ‘Exploring the Nature of the Beast: International Relations Theory and Comparative Policy Analysis Meet the European Union’, Journal of Common Market Studies, 34, 53–80.CrossRefGoogle Scholar
  91. Rittberger, B. and Wonka, A. (2011) ‘Introduction: Agency Governance in the European Union’, Journal of European Public Policy, 18, 780–789.CrossRefGoogle Scholar
  92. Rosamond, B. (2000) Theories of European Integration (Houndmills: Macmillan).Google Scholar
  93. Ruggie, J. G., Katzenstein, P. J., Keohane R. O. and Schmitter, P. C. (2005) ‘Transformations in World Politics: The Intellectual Contributions of Ernst B. Haas’, Annual Review of Political Science, 8, 271–296.CrossRefGoogle Scholar
  94. Saint-Simon, H. (1964) Social Organization, the Science of Man and Other Writings (New York: Harper Torchbooks).Google Scholar
  95. Scharpf, F. W. (1985) The Joint-Decision Trap: Lessons from German Federalism and European Integration (Berlin: Wissenschaftszentrum Berlin).Google Scholar
  96. Scharpf, F. W. (2006) ‘The Joint-Decision Trap Revisited’, Journal of Common Market Studies, 44, 845–864.CrossRefGoogle Scholar
  97. Schattschneider, E. E. (1975) The Semisovereign People (Fort Worth: Harcourt Brace Jovanovich College Publishers).Google Scholar
  98. Schmidt, S. K. (2000) ‘Only an Agenda Setter?: The European Commission’s Power over the Council of Ministers’, European Union Politics, 1, 37–61.CrossRefGoogle Scholar
  99. Scully, R. (2002) ‘Going Native? Institutional and Partisan Loyalties in the European Parliament’, in Steunenberg, B. and Thomassen, J. (eds.) The European Parliament: Moving Towards Democracy in the EU (London: Rowan and Littlefield), 113–136.Google Scholar
  100. Searing, D. D. (1991) ‘Roles, Rules, and Rationality in the New Institutionalism’, American Political Science Review, 85, 1239–1260.CrossRefGoogle Scholar
  101. Selden, S. C. (1998) The Promise of Representative Bureaucracy Diversity and Responsiveness in a Government Agency (Armonk, New York: M.E. Sharpe).Google Scholar
  102. Siedentopf, H. and Ziller, J. (1988) Making European Policies Work: The Implementation of Community Legislation in the Member States. Volume I: Comparative Syntheses (EIPA: Bruylant: SAGE).Google Scholar
  103. Simon, H. (1957) Administrative behavior, Second Edition (New York: Macmillan).Google Scholar
  104. Skowronek, S. (1982) Buildinga New American State: The Expansion of National Administrative Capacities (Cambridge: Cambridge University Press).CrossRefGoogle Scholar
  105. Stie, A. E. (2013) Democratic Decision-Making in the EU: Technocracy in Disguise? (London: Routledge).Google Scholar
  106. Suvarierol, S. (2007) Beyond the Myth of Nationality: A Study on the Networks of European Commission Officials (Delft: Eburon).Google Scholar
  107. Thornton, P. H., Ocasio, W. and Lounsbury, M. (2012) The Institutional Logics Perspective: A New Approach to Culture, Structure, and Process (Oxford: Oxford University Press).CrossRefGoogle Scholar
  108. Trondal, J. (2006) ‘EU Committee Governance and the Multilevel Community Administration’, in Hofman, H. C. H. and Türk, A. (eds.) EU Administrative Governance (Cheltenham: Edward Elgar), 391–416.Google Scholar
  109. Trondal, J. (2007) ‘The Public Administration Turn in Integration Research’, Journal of European Public Policy, 14, 960–972.CrossRefGoogle Scholar
  110. Trondal, J. (2010) An Emergent European Executive Order (Oxford: Oxford University Press).CrossRefGoogle Scholar
  111. Trondal, J. (2013) ‘The Rise of a European Public Administration. European Capacity Building by Stealth’, in Jachtenfuchs, M. and Genschel, P. (eds.) Regulatory or Federal? The European Integration of Core State Powers (Oxford: Oxford University Press), 166–168.CrossRefGoogle Scholar
  112. Trondal, J. and Peters, B. G. (2013) ‘The Rise of European Administrative Space: Lessons Learned’, Journal of European Public Policy, 20, 1–21.CrossRefGoogle Scholar
  113. Van Waarden, F. (1995) ‘Persistence of National Policy Styles: A Study of Their Institutional Foundations’, in Unger, B. and van Waarden, F. (eds.) Convergence or Diversity? Internationalization and Economic Policy Response (Adlerhot: Avebury), 333–372.Google Scholar
  114. Wallace, H., Pollack, M. A. and Young, A. R. (2010) Policy-Making in the European Union, Sixth Edition (Oxford: Oxford University Press).Google Scholar
  115. Weiler, J. H. H. (1999) ‘Epilogue: “Comitology” as Revolution — Infranationalism, Constitutionalism and Democracy’, in Joerges, C. and Vos, E. (eds.) EU Committees: Social Regulation, Law and Politics (Oxford: Hart Publishing), 339–350.Google Scholar
  116. Wessels, W. (1998) ‘Comitology: Fusion in Action. Politico-Administrative Trends in the EU System’, Journal of European Public Policy, 5, 209–234.CrossRefGoogle Scholar
  117. Wessels, W. (2000) Die Öffnung des Staates: Modelle und Wirklichkeit grenzüberschreitender Verwaltungspraxis 1960–1995 (Wiesbaden: VS Verlag für Sozialwissenschaften).CrossRefGoogle Scholar
  118. Wilson, J. Q. (1989) Bureaucracy (New York: Basic Books).Google Scholar

Copyright information

© Michael W. Bauer and Jarle Trondal 2015

Authors and Affiliations

  • Michael W. Bauer
    • 1
  • Jarle Trondal
    • 2
  1. 1.German University of Administrative SciencesSpeyerGermany
  2. 2.University of CopenhagenDenmark

Personalised recommendations