Participatory Governance in the EU: Enhancing or Endangering Democracy and Efficiency? PDF
Preview Participatory Governance in the EU: Enhancing or Endangering Democracy and Efficiency?
PalgraveStudiesinEuropeanUnionPolitics Editedby:MichelleEgan,AmericanUniversity,USA,NeillNugent,ManchesterMetropolitanUniver- sity,UK,andWilliamPatersonOBE,UniversityofAston,UK. EditorialBoard:ChristopherHill,Cambridge,UK,SimonHix,LondonSchoolofEconomics,UK,Mark Pollack,TempleUniversity,USA,KalypsoNicolaïdis,OxfordUK,MortenEgeberg,UniversityofOslo, Norway,AmyVerdun,UniversityofVictoria,Canada,ClaudioM.Radaelli,UniversityofExeter,UK, FrankSchimmelfennig,SwissFederalInstituteofTechnology,Switzerland. FollowingonthesustainedsuccessoftheacclaimedEuropeanUnionSeries,whichessentiallypublishes research-basedtextbooks,PalgraveStudiesinEuropeanUnionPoliticspublishescutting-edgeresearch- drivenmonographs. Theremitoftheseriesisbroadlydefined,bothintermsofsubjectandacademicdiscipline.Alltop- icsofsignificanceconcerningthenatureandoperationoftheEuropeanUnionpotentiallyfallwithin thescopeoftheseries.TheseriesismultidisciplinarytoreflectthegrowingimportanceoftheEUasa political,economicandsocialphenomenon. Titlesinclude: IanBacheandAndrewJordan(editors) THEEUROPEANIZATIONOFBRITISHPOLITICS ThierryBalzacq(editor) THEEXTERNALDIMENSIONOFEUJUSTICEANDHOMEAFFAIRS Governance,Neighbours,Security FalkDaviter POLICYFRAMINGINTHEEUROPEANUNION RenaudDehousse(editor) THE‘COMMUNITYMETHOD’ ObstinateorObsolete? KennethDysonandAngelosSepos(editors) WHICHEUROPE? ThePoliticsofDifferentiatedIntegration MichelleEgan,NeillNugent,andWilliamE.Paterson(editors) RESEARCHAGENDASINEUSTUDIES StalkingtheElephant KevinFeatherstoneandDimitrisPapadimitriou THELIMITSOFEUROPEANIZATION ReformCapacityandPolicyConflictinGreece StefanGänzleandAllenG.Sens(editors) THECHANGINGPOLITICSOFEUROPEANSECURITY EuropeAlone? EvaGross THEEUROPEANIZATIONOFNATIONALFOREIGNPOLICY ContinuityandChangeinEuropeanCrisisManagement AdrienneHéritierandMartinRhodes(editors) NEWMODESOFGOVERNANCEINEUROPE GoverningintheShadowofHierarchy WolframKaiser,BrigitteLeucht,andMichaelGehler TRANSNATIONALNETWORKSINREGIONALINTEGRATION GoverningEurope1945–83 HusseinKassimandHandleyStevens AIRTRANSPORTANDTHEEUROPEANUNION EuropeanizationanditsLimits RobertKissack PURSUINGEFFECTIVEMULTILATERALISM TheEuropeanUnion,InternationalOrganizationsandthePoliticsofDecisionMaking KatieVerlinLaatikainenandKarenE.Smith(editors) THEEUROPEANUNIONANDTHEUNITEDNATIONS IntersectingMultilateralisms EsraLaGroandKnudErikJørgensen(editors) TURKEYANDTHEEUROPEANUNION ProspectsforaDifficultEncounter Karl-OskarLindgrenandThomasPersson PARTICIPATORYGOVERNANCEINTHEEU EnhancingorEndangeringDemocracyandEfficiency? IngoLinsenmann,ChristophO.MeyerandWolfgangT.Wessels(editors) ECONOMICGOVERNMENTOFTHEEU ABalanceSheetofNewModesofPolicyCoordination HartmutMayerandHenriVogt(editors) ARESPONSIBLEEUROPE? EthicalFoundationsofEUExternalAffairs PhilomenaMurray(editor) EUROPEANDASIA RegionsinFlux DanielNaurinandHelenWallace(editors) UNVEILINGTHECOUNCILOFTHEEUROPEANUNION GamesGovernmentsPlayinBrussels DavidPhinnemoreandAlexWarleigh-Lack REFLECTIONSONEUROPEANINTEGRATION 50YearsoftheTreatyofRome SebastiaanPrincen AGENDA-SETTINGINTHEEUROPEANUNION CarolynRowe REGIONALREPRESENTATIONINTHEEU BetweenDiplomacyandInterestMediation EmmanuelleSchon-Quinlivan REFORMINGTHEEUROPEANCOMMISSION RogerScullyandRichardWynJones(editors) EUROPE,REGIONSANDEUROPEANREGIONALISM AsleToje AFTERTHEPOST-COLDWAR TheEuropeanUnionasaSmallPower RichardG.WhitmanandStefanWolff(editors) THEEUROPEANNEIGHBOURHOODPOLICYINPERSPECTIVE Context,ImplementationandImpact RichardG.Whitman(editor) NORMATIVEPOWEREUROPE EmpiricalandTheoreticalPerspectives PalgraveStudiesinEuropeanUnionPolitics SeriesStandingOrderISBN978–1–4039–9511–7(hardback)and ISBN978–1–4039–9512–4(paperback) (outsideNorthAmericaonly) Youcanreceivefuturetitlesinthisseriesastheyarepublishedbyplacingastandingorder.Pleasecontact yourbookselleror,incaseofdifficulty,writetousattheaddressbelowwithyournameandaddress, thetitleoftheseriesandtheISBNquotedabove. CustomerServicesDepartment,MacmillanDistributionLtd,Houndmills,Basingstoke,HampshireRG21 6XS,England Participatory Governance in the EU Enhancing or Endangering Democracy and Efficiency? Karl-Oskar Lindgren Researcher,DepartmentofGovernment,UppsalaUniversity,Sweden Thomas Persson AssociateProfessor,UppsalaUniversity,Sweden ©Karl-OskarLindgrenandThomasPersson2011 Softcover reprint of the hardcover 1st edition 2011 978-0-230-24178-7 Allrightsreserved.Noreproduction,copyortransmissionofthis publicationmaybemadewithoutwrittenpermission. Noportionofthispublicationmaybereproduced,copiedortransmitted savewithwrittenpermissionorinaccordancewiththeprovisionsofthe Copyright,DesignsandPatentsAct1988,orunderthetermsofanylicence permittinglimitedcopyingissuedbytheCopyrightLicensingAgency, SaffronHouse,6-10KirbyStreet,LondonEC1N8TS. Anypersonwhodoesanyunauthorizedactinrelationtothispublication maybeliabletocriminalprosecutionandcivilclaimsfordamages. Theauthorshaveassertedtheirrightstobeidentified astheauthorsofthisworkinaccordancewiththeCopyright, DesignsandPatentsAct1988. Firstpublished2011by PALGRAVEMACMILLAN PalgraveMacmillanintheUKisanimprintofMacmillanPublishersLimited, registeredinEngland,companynumber785998,ofHoundmills,Basingstoke, HampshireRG216XS. PalgraveMacmillanintheUSisadivisionofStMartin’sPressLLC, 175FifthAvenue,NewYork,NY10010. PalgraveMacmillanistheglobalacademicimprintoftheabovecompanies andhascompaniesandrepresentativesthroughouttheworld. Palgrave®andMacmillan®areregisteredtrademarksintheUnitedStates, theUnitedKingdom,Europeandothercountries. ISBN978–1–349–31746–2 ISBN978–0–230–34779–3 (eBook) DOI 10.1057/9780230347793 Thisbookisprintedonpapersuitableforrecyclingandmadefromfully managedandsustainedforestsources.Logging,pulpingandmanufacturing processesareexpectedtoconformtotheenvironmentalregulationsofthe countryoforigin. AcataloguerecordforthisbookisavailablefromtheBritishLibrary. LibraryofCongressCataloging-in-PublicationData Lindgren,Karl-Oskar. ParticipatorygovernanceintheEU:enhancingorendangeringdemocracy andefficiency?/Karl-OskarLindgren,ThomasPersson. p. cm. Includesindex. 1. Politicalparticipation—EuropeanUnioncountries. 2. Democracy— EuropeanUnioncountries. I. Persson, Thomas. II. Title. JN40.L552011 323(cid:2).042094—dc23 2011021109 10 9 8 7 6 5 4 3 2 1 20 19 18 17 16 15 14 13 12 11 Contents ListofFigures vi ListofTables vii Preface viii 1 ParticipatoryGovernance:PromisesandPitfalls 1 2 AssessingParticipatoryGovernance–ASurvey Approach 22 3 TheStructureofPoliticalContestation 40 4 OpportunitiesforParticipationandAccessto Information:AdequateandEqual? 66 5 ChancestoInfluencePolicy:EqualandEffective? 84 6 InputandOutputLegitimacy:SynergyorTrade-off? 106 7 ParticipatoryGovernance:TheWayForward? 123 DataAppendix:VariablesUsedinthisStudy 136 Notes 140 References 143 Index 154 v List of Figures 1.1 ThreestrategiesforstrengtheningdemocracyintheEU 12 3.1 LipsetandRokkan’stwodimensionsofpolitical contestation 44 3.2 Confidence-intervalplotforpositiononREACHby country 54 3.3 Confidence-intervalplotforpositiononREACHby organisationalaffiliation 55 3.4 Confidence-intervalplotforpositiononREACHby interestaffiliation 56 5.1 Confidence-intervalplotfortheinfluenceofvarious organisations 98 5.2 Confidence-intervalplotfortheinfluenceofvarious interests 101 vi List of Tables 2.1 Numberandshareofparticipantsinthesurveyfrom differentcountries 36 2.2 Numberandshareofindividualsrepresenting differentactorcategoriesinthesurvey 37 2.3 Numberandshareofparticipantsinthesurvey representingdifferenttypesofinterest 37 3.1 FactoranalysisofitemsrelatingtotheREACHproposal 51 3.2 Dyadicanalysisofopinion-congruence 60 4.1 TheopennessoftheREACHprocessandthe accessibilityofdecision-makers.Averageestimations amongorganisations 76 4.2 TheopennessoftheREACHprocessandthe accessibilityofdecision-makers.Averageestimations amonginterests 78 4.3 Therepresentationofrelevantviewpointsinthe REACHprocessandaccessibilityofinformation. Averageestimationsamongorganisations 79 4.4 Therepresentationofrelevantviewpointsinthe REACHprocessandaccessibilityofinformation. Averageestimationsamonginterests 81 5.1 Theinfluenceoforganisations 96 5.2 Theinfluenceofinterests 100 6.1 Determinantsofoutputlegitimacy 116 vii Preface The waning legitimacy of the European Union (EU) and its alleged democraticdeficithavebecomearecurrentthemeinthecontempo- rary debate on the future of European integration. As demonstrated by, for example, the problems to ratify the Lisbon Treaty, the low turnoutinthe2009EuropeanElectionsandthediminishingsupport for the EU following the financial and economic crises, the Union is in great need of improving its legitimacy among the European citizenry. In our view there is unlikely to be any quick fix to the legiti- macy problems of the EU. Instead, we ought to look for reforms that may accomplish piecemeal improvements, without impeding whathasalreadybeenaccomplishedinbuildingarepresentativesys- tem of government at the EU level. This book is about one such reform,namelytheongoingdrivetoincorporatecivil-societyorgan- isations and interest groups in EU policy making. According to the proponentsofthisstrategy,theintroductionofnewforaforinterest- group participation and deliberation should help connect the EU morecloselytoitscitizensandleadtomoreeffectivepolicies.Other observers, however, warn that these reforms will mainly serve to strengthenthepositionofalreadypowerfulactorsyetfurther. In this book we seek to answer the vital question of whether reformsaimedatincreasingcivil-societyandinterest-groupinvolve- ment in policy making enhance or endanger democracy and effi- ciency within the Union. Towards this end, the book provides a comprehensiveempiricalinvestigationofoneofthemostambitious attemptsinthisdirection:therecentEUchemicalspolicyoverhaul. The first impetus for writing a book about these issues came from aresearchprojectin2004–2006,“TheEUdecisionprocessforchem- icals regulation”, which was part of the so-called News programme, headedbyProfessorSvenOveHanssonattheRoyalInstituteofTech- nology in Stockholm, and financed by The Foundation for Strategic EnvironmentalResearch(Mistra).Duringthisprojectthesurveythat provided data for the empirical assessment undertaken in this book wasconducted. viii Preface ix An opportunity to make contact with researchers with a sim- ilar interest in questions relating to civil society and democracy in the EU was given by the CONNEX (Connecting Excellence on European Governance) network headed by Professor Beate Kohler- KochinMannheim.Shearranged,amongmanyotherthingsinthis impressive programme, a workshop on “The Institutional Shaping ofEU-SocietyRelations”in2006,whichwasaninvaluablesourceof intellectualinspiration. In preparingthis volume, we have incurredmany debts from col- leagues and friends who have provided valuable and, disturbingly often, justified critique on earlier drafts. We particularly wish to thank Sverker Gustavsson, Christer Karlsson, Moa Mårtensson and theotherparticipantsintheEuropeanStudiesseminarattheDepart- ment of Government, Uppsala University, who provided valuable inputduringtheearlystagesofthisproject.Wealsowanttoexpress our satisfaction at being part of the Swedish Network for European Studies in Political Science. Indirectly, it has very much supported our work through its regular conferences and the good relations it haspromotedbetweenscholars.Inaddition,Lindgrenwouldliketo acknowledge the financial support provided by Jan Wallander and TomHedeliusFoundation. We are also grateful to the patient and supportive Commission- ingEditor,AmberStone-Galilee,andAssistantEditor,LizBlackmore, at Palgrave, and to Peter Mayers who have helped in putting the manuscripttogether. Finally,ourdeepestgratitudegoestoourfamiliestowhomweded- icate this book. So thank you Jessie, Signe, Hilma, Sara, Ebba and Hjalmar for constantly reminding us that there are more important thingsinlifethanEUpolicymaking. Karl-OskarLindgrenandThomasPersson
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