The Europeanization of National Administrations: Common Agricultural Policy in Denmark and Greece

233 Pages·2020·2.797 MB·English

by  Sevasti Chatzopoulou

Sevasti Chatzopoulou
The Europeanization
of National
Administrations
Common Agricultural Policy in Denmark
and Greece
The Europeanization of National Administrations
Sevasti Chatzopoulou
The Europeanization
of National Administrations
Common Agricultural Policy in Denmark
and Greece
Sevasti Chatzopoulou
Department of Social Sciences and Business
Roskilde University
Hellerup, Denmark
ISBN 978-3-030-47221-4 ISBN 978-3-030-47223-8 (eBook)
https://doi.org/10.1007/978-3-030-47223-8
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This book is dedicated to my children
Marilena and Adonis.
Acknowledgements
We rarely connect the writing of academic books with our personal experiences,
which is not the case with this book. My endeavour with agriculture started many
years ago when, as a Masters student, I tried to avoid studying agricultural econom-
ics in Canada. I did not succeed, for various reasons, and not only did I study agri-
cultural economics, but I continued to do research on food and agricultural policy
and politics.
Growing up in a farming family in Northern Greece provided me with first-hand
experience of the challenges that Greek agriculture has faced. My father, grandfa-
ther and uncles were all farmers, who had experienced a shared agony: the weather,
agricultural loans and the cost of inputs during the different seasons, which defer
among agricultural activities. During the summer, I worked at the local cooperative,
helping with the harvest sales administration. As many of my family members were
members of the cooperative board, it was easy to get a summer job there. There, I
became acquainted with the hardship of agricultural life, especially during the har-
vest. While most families were on holidays on the Greek seaside, farmers’ children
had to help at home. As a child, I did not like agricultural life conditions, a feeling
that I shared with my mother, who always reminded us how important it was to
study hard so we would have a better life. In contrast, my dad loved being on the
farm, where he spent endless hours and knew the status of all the crops in the plain,
not just his own.
I feel lucky that I followed my mother’s advice. This book is a result of my study-
ing where, as an academic, I have been able to see Greek agriculture through a dif-
ferent lens. To understand the challenges of the sector but most importantly the
politics involved, which has always been of great interest to me. This book is not
only about Greek agriculture, it is a comparative study of the Europeanisation of
national administration, in Greece and Denmark, with respect to agriculture.
Although I first examine the Danish case in the book, my interest in agriculture
started in my life in Greece. However, the Danish case is also directly linked to my
personal experience, as Denmark is my adopted home where by now I have lived
more years than in any other country, including Greece. When I first came to
vii
viii Acknowledgements
Denmark, I worked at Copenhagen University (then KVL – the Danish Agricultural
University), as a research Assistant. I then did an internship at Axelborg in the heart
of Copenhagen (the then Danish Agricultural Council and umbrella organisation of
the sector) which enlightened me on Danish agriculture. I was fascinated especially
as I realised how closely the history of the Danish state was linked to agriculture,
not only during very difficult times at the end of the eighteenth century, but also in
recent history. As I write in this book, the agricultural sector has been determining
for the Danish accession in the European Union (EU), which falls within my main
academic area of interest: EU integration of policy and politics. Therefore, begin-
ning from where I started my life in Greece and ending where I am in Denmark, I
hope this book can close a cycle of my life and mark the beginning of new endeav-
ours. Living in both of these countries and not feeling that I belong in either of them
represents my strong European identity.
Writing is a lonely process, but my personal connection to all these experiences
and people made this book less so. During the writing period, I met many new
people, who taught me new things and perspectives, colleagues who supported me
when I was feeling stuck and frustrated and people who invited me for research
stays. I would like to thank them all because they all played a significant role in this
process.
First of all, I would like to thank my institution – the Department of Social
Sciences and Business, at Roskilde University – and my colleagues at research
groups (the Globalization and Europeanization and the Roskilde School of
Governance) for reading parts of the book and providing me valuable, constructive
comments, which helped make my points more clear and convincing. Special thanks
to Birgitte Poulsen, Peter Triantafyllou and Kennet Lyngaard for their constant sup-
port. I would also really like to thank a group of people who supported and shared
similar challenges to me during the writing process: Caroline Grøn, Catharina
Sørensen, Rebecca Adler-Nissen, Ulrik Pram Gad, Rasmus Leander Nielsen and
Rasmus Brun Pedersen. I owe a great debt to two people who have been important
for my academic development, as they have helped to develop my ideas through
their questions, suggestions and feedback. Susana Borrás who believed in me and
gave me the opportunity to proceed with my academic career and Chris Ansell for
outstanding hospitality at the Department of Political Science at Berkeley University
and for always asking the most interesting and challenging questions. I also thank
Wyn Grant and Vaggelis Divaris for their kindness to read and endorse my book and
all the interviewees who provided valuable knowledge and expert information. I,
particularly, would like to thank Niels Madsen Lindberg at the Danish Food and
Agricultural Council, Professor and Previous General Secretary at the Ministry of
Agriculture in Greece, and Tassos Haniotis from Directorate General in the
Commission.
Lastly but most importantly, I owe my greatest debt and thanks to my family, my
parents, who believed in the women of this world, for always encouraging me to
study and be an independent woman. Special thanks go to my sisters for being there,
sharing my frustrations and being good listeners. My children Marilena Karantininis
and Adonis Karantininis and my husband and life companion Kostas Karantininis
Acknowledgements ix
paid the highest price for this book, as I could not spend time with them very often
when they needed me. I apologise for this and since I cannot go back, I hope for
their understanding in the future. I want them to know that they have been my con-
stant inspiration and encouragement. Kostas has been my sounding board for ideas
throughout, critically challenging many of my views with his insightful and the in-
depth knowledge of agriculture and agricultural economics. My family taught me
the most important lesson in life: that there is more than academic knowledge, theo-
ries and methods. I dedicate this book to my children Marilena and Adonis.
Contents
1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
The Common Agricultural Policy . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Europeanisation of the Domestic Administration . . . . . . . . . . . . . . . . . . 12
Measuring Domestic Administrative Adaptation . . . . . . . . . . . . . . . . . . 15
Mixed Methods and Europeanisation . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
Main Objectives of the Book . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
Mapping of the Book . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
2 Europeanisation and Domestic Administrative Adaptation . . . . . . . 23
Conceptualising Europeanisation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
Europeanisation and Domestic Impact . . . . . . . . . . . . . . . . . . . . . . . . . . 28
Identifying the Domestic Factors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
Typology of Domestic Factors: Organisation of the Sector,
Domestic Politics and Network Governance . . . . . . . . . . . . . . . . . . . 35
Administrative Adaptation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42
Comparative Mixed Method . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45
Country Case Selection . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49
3 The Danish Case . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55
Mapping the Actors in Danish Agriculture . . . . . . . . . . . . . . . . . . . . . . . 56
The Agricultural Policy-Making Process . . . . . . . . . . . . . . . . . . . . . . . . 59
Europeanisation of the Danish Agriculture . . . . . . . . . . . . . . . . . . . . . . . 61
The Organisation of the Sector . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61
Domestic Politics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 69
Network Governance Patterns . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 79
Administrative Changes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 89
4 The Greek Case . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 99
Antecedent Conditions and Pre-1981 EU Agreements . . . . . . . . . . . . . . 100
Mapping the Actors and the Organisational Characteristics
in Greek Agriculture . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 103
The Agricultural Policy-Making Process in Greece . . . . . . . . . . . . . . . . 106
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xii Contents
Europeanisation of Greek Agriculture . . . . . . . . . . . . . . . . . . . . . . . . . . 107
The Organisational Structure of the Sector . . . . . . . . . . . . . . . . . . . . . 107
Domestic Politics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 113
Network Governance Patterns . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 118
Administrative Adaptation to CAP in Greece . . . . . . . . . . . . . . . . . . . 126
5 Comparing in Administrative Adaptation to CAP
in Denmark-Greece . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 137
Domestic Factors . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 137
The Organisational Structure of the Sector . . . . . . . . . . . . . . . . . . . . . . . 139
Domestic Politics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 142
Network Governance Patterns . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 147
Variation in the Administrative Adaptation to the EU CAP . . . . . . . . . . 150
6 Administrative Adaptation During the Eurozone Crisis . . . . . . . . . . 157
Organisation of the Sector. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 158
Domestic Politics . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 165
Network Governance Structures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 170
Administrative Changes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 171
7 Conclusions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 179
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 179
Research Findings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 180
What Have We Learned? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 185
Contributions of the Book . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 187
Further Research . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 189
Appendices . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 191
References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 207
Index . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 219