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8/22/2019 Structuring the European Administrative Space. Channels of EU Penetration and Mechanisms of National Change
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S E A SChannels of EU Penetraon and Mechanisms of
Naonal Change
E G. H
No. 5 | September 2009
Working Paper
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2 | KFGWorking Paper No. 5 | September 2009
KFG Working Paper Series
Edited by the Kolleg-Forschergruppe T T Pw E
T KFG W P S l f Kolleg-Forschergruppe y
ll l. I x wll x
l xl E E U.
All KFG W P ll KFG w www.f. l
f-@f-l..
Cy f : E G. H
El : J Wl/F A/H K
H, E G. 2009: S E A S: Cl f EU P M
f Nl C, KFG W P S, N. 5, S 2009, Kll-F (KFG) T Tf
Pw f E, F Uy Bl.
ISSN 1868-6834 (P)
ISSN 1868-7601 (I)
T l f y G R F (DFG).
F U Bl
Kolleg-Forschergruppe
T Tf Pw f E:
T E U D f I
I. 26
14195 Bl
Gy
P: +49 (0)30- 838 57033
Fx: +49 (0)30- 838 57096f-@f-l.
www.f.
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Structuring the European administrative Space | 3
Structuring the European Adminstrative Space
Channels of EU Penetration and Mechanisms of
National Change
E G. Hb
F U B
Ab
T lyl l f l l
l . T w w European administrave space
y w . I f f ly lx j ,
yly l y f w l l
ll f f l l
f E l l . Sz w f l -
E U (EU) w lly
ll . I w ly -
y. Oly x f l EU l l
f l w .
D xl f l l, y f E
w l l . T l fw
l l f f f l w l
l l .
T A
E G. Hb fllw R Cll T Tf
Pw f E F U Bl, w l w
l EU . H
f EU l ly. S l PD f
E Uy I Fl E S f
U f O, N L wll I f A
S V. C: @z.f-l.
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4 | KFGWorking Paper No. 5 | September 2009
Contents
1. I: I T E A S? 52. Tl Fw:
S Dy f EU A S 7
2.1 Channels of Interacon between Supranaonaland Naonal Public Administraon 7
2.2 Mechanisms of Supranaonal Impact onState-level Public Administraons 10
3. Ill E E A S 11
3.1 Supranaonal Principles and Subordinated Naonal Public
Administraons 123.2 Supranaonal Targets and Naonal Brokers 16
3.3 Supranaonal Prescripons for Naonal Execung Bodies 20 3.4 Naonal Responses for Independent Implemenng Agencies 23
4. Cl:M f E E A S 25
L 27
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Structuring the European administrative Space | 5
1. I: I T E A S?
An emerging European administrave space (EAS) l . T x y
f l q, l f w f E
E l (Ol 2003: 506). M l w
l w f w f l z f E
l , Gz ll f E
j f x . T E
; l w E l
(Gz 2001: 227). By , f single European administrave
space lly f f ll . El w
l y y w EU
(J 2007: 947), f Europeanized naonal administraons, networked administrave
system or EU administrave community (Sf/S 2003: 23). M lly f ly, f
l xl f f f - l l (Gz 2006: 484f),
wll l lz l f l
f EU (Kll 2001: 12).
T zzl, , l ly :
E w w l l .
Nl y y E , y EU y f
l l l l l. T y y
z f f l EU f l
f EU l l .
T f , w w EU l , wl ly f l
y f wll ly l
ll.
Tw l ql y w f f ,
xl y. F, l f
f l l f f l .
Ply y w , ly wll l llw l w l, ly f l l . T
q : w EU lly l l ? Ul l f
, q f xlly . N x
f l y x f EU lly
f f y l ly
f y y. A wll w, f
l , y, f y y qlly
, y. Cqly, ll ly l E
w ly jly x w
l EU y f y (Hf 2008: 671).
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6 | KFGWorking Paper No. 5 | September 2009
T l . D l f l, f
l Cl E E, -x f
ll l . S f l
w l , x f single E
w , f x w universalEU l.
T EU l l f l y wll f
f w x EU f
f ll EAS. F, wy
w l l f f f l
w f l w f w l xl
. T w, l l EAS
lly ll l, flly
w EU l l .1
Sly, fy l , I w - y Gz (2001,
2006); EU l wly . A ,
, l w Ol w l l f ,
ly f llly fll ly [] w,
w , q . T ll
l lyl l w xly w f
y (2003: 507). Hw, I f y . O
, Gz ll f f l f l Ez
f l f (Gz 2001: 227f). O , Ol l
y xl (llz, l )
l f l EU (Ol 2003).
I l w w xl, y f
w EU lly . T lylly fl y l
y l y f f , w
w l f y f w l l
ll. B l yl l f l EU , ly
lly x y l f
. S f l y f f , l f f Ez (Ol 2001). I f x
xl f l EU l f , I
wll w l fw lly f l l
. T llw w f , wl f f f
l EU l l , y l -
1 T l l f 12 w
2004/2007. O y-l x f l El (2009).
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Structuring the European administrative Space | 7
f l EU ll wll zl w . 2
T f y y. T l l
fw w . A yly f l f w l l
ll ly f l , ly. P l ll l f EU
. I l ly f f
f. Tf, l l , wl f
fy f l y . T l l
E ; y f
. T l :
w E , w l w wll l , w
.
2. T Fwk: S Dy EU A
S
Hw l f l E l? I wll l q
w . T ly, I yly f w l ll
flly w ll f l . E f f y f l f
l f f l l .
I , y f l l
lly . B, channels of interacon and mechanisms of change, lz
l w l z
w l w .
2.1 Channels of Interacon between Supranaonal and Naonal Public
Administraon
Channels of interacon w y f l l l
2 Europeanizaon w w l
ly w EU ll w f fl f -
l lw l: Bzl (2002); Bzl (2003); Bzl/R (2000); G Cwl l. (2001); H
l. (2001); Kll/Ll (1999); Kll/Ll (2002). I , w, wy l -
wl ylly f ll f ll f l . I w ,
l ll f ll f Tl 2 f Ez. Czl (1998), f ,
y -w ( f f, l f w l
l ly ) Ez . Al l f fl Ez
-l ly (f , Bzl 2001; Fl l. 2005; H l. 2001).
I , Ez l ll l f l f f EU- .
S f Ez l
y EU l f l ly l (Bzl 2002; Bzl 2003; Bzl/R2000; D 2005; Fl l. 2005; G Cwl l. 2001; Kll 2001; Kll/Ll 2002; Kll/L-
w 2001; Lw l. 2005)
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w wy. A l f y ll f l -
(, -), f y f q l ( ,
fl ). S w l, w l
l l , ly () y standards, jly
l f f, z, ;
() y policy goals w l l l
f l ly w ly j. Wl
l zlly z f f
ly ly- f l l
l ly . Aly, w ly, l
is an end lf. W l l lly, l
are the means ly l.
T lly l, w degree of discreonof naonal actors l f l . Ally () direct if the
l w l l lly l
y q w l f l lw ll. I , () -
l l w. Ally f indirect
f l w, (Bz 2006) l
l w l l . I q,
lly ly ly f l f l
fl f f .
Tl 1 f y f ll f w . N
yly z l y f w l z ll. T
w x w wy EU w f l wll
qly , f , l . I , lly
ll f l z - , EU
y l z . W f
l f l ?
Table 1: Channels of supranaonal / state interacon
SupranationalInfuence
Applicability toPublic Administration
Standards
Generic changePolicy Goals
Change as functional offshoot
Direct
Hierarchical relationship betweenEU / MS
PRINCIPLES
generally binding / horizontalPRESCRIPTIONS
sector-specic binding / functional
IndirectNon-hierarchical relationship
between EU / MS
TARGETSvoluntary /selective RESPONSESresults-based/ instrumental
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Structuring the European administrative Space | 9
Directly applicable standards l
l f . Ty l l f l l l
f lly. D flly , ly f
l flz ll . Exl l l,
l f lw, lly l f ll l zlly ll
. Indirectly applicable standards, , targets flly .
H, f l w w f wll
j ly w wll w l y. Ily
ll ll fl ly
fl w. C w flll lz f
x w y lly l -
y j l ll l. A wll ll
l , f f f l , w,
w ly y fl. F xl, llly l f lw f l f l z y, x f , ll
f l y l (-) l. M ly, z ,
y w l (NPM),
, x f l l, l
l wll (Pll 2002; Rll 2005). I , l
l f l, lly w
f ly -l f.
O l , ly- l
l ly w l ly j. T
l l f l , q
y. T l , w, l ly
l ly l. I , directly applicable rules for policy implementaon create sector
f l l l fl
. F , f . I f
ly l f l ly j f z . If,
, ly j fl w f ly indirectly
applicable rule f l l ly w ly j.
Y, l l w l l
, w w l q responses l ly ly l.
Sy w xl: w z l y
, l j f z . T
, l l f y, l l w l
f l y. T w, w l
l f f l.
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2.2 Mechanisms of Supranaonal Impact on State-level Public Administraons
W f l l y f l ? I
w, w w x lly w l l, ,
ly? A , wll l y w
lly l . T f ly l l l
. T q l w, w f l f
w lll f ll w . T
l y w EU (Bzl/R 2009) l l
y y l f ll
-l l. Aly, l f w y l l
l l f l l l l l w
f l .
Table 2: Mechanisms of change and role of state public administraon
Tl 2 z f l f , f
Tl 1. Aly, w lprinciples (ly ll/) f , EU
lly l, ly l, w l l l
f b f l y. Lw, ly ll -
prescripons (ly ll/ly l) l
. T ly l w EU xl l
l l fx b l f E C. W
EU ly , l lly f l f
w l (/). Nl f
independent brokers lly . W EU ly f y
f l f l q responses
(/ly l), l l z f independent
Supranational
Influence
Applicability to
Public Administration
Standards
Generic change
Policy Goals
Change as functional offshoot
Direct
Hierarchical relationship between
EU / MS
Subordinate of
Supranational Authority
Promotion of a single general model
Executing Body of
EU Administration
Mandatory adherence to a concrete model
Indirect
Non-hierarchical relationship
between EU / MS
Independent
Broker
Encouragement of a plurality of
models
Independent
Implementation Agency
Consent to a range of models
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Structuring the European administrative Space | 11
y: l l w
l y ly l.
3. I E E A S
T l fw ly ly w f f
q: w w l
l f l ? I wll lz fy
lly w x -l f l E U. W
l l l EU l f f l f ?
F, I wll w EU f . T f f ly ll
xl wy f y f l . Wl EU z policies, l y w public administraons.
S f EU l , ll
l -1990. T x f l. D lly
f Cl E E , w :
f l ly w acquis communautaire.
A EU , l ly ll l z lfy fl fl
l f EU lw y. R EU,
C w l f
l . S, w wll lyll . I f -
, fl w l l 1970
w ly 1990. By ,
l Cy .
S, I wll fl q f
f lly ly l. Illy, l l f
Cy lw l f . T Cy l
ly indirect administraon. E y f lwy
j xl direct administraon y C lf f Cy,
l w x f ly Single European Act l
1980 (C 2004: 40). A f l l, E C f J (ECJ)
ly l l f l y lfy
f l f l l. T - f l
f f y ll y y :
l f Cy lw. (F 2004: 183)
Wl w wll w yly f
l f EU , l ly . I
Cl Rl 1334/2000, fcommon administraon l l ly
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w C w l w
. T ly l y f y
y f f l f ly. Tf,
ly lyl , y l f ly
f ll ly. Glly, w,
proposals privileging a division of tasks between the Community administraon and naonal
administraons abound. One suggeson is for the two enes to perform funconally dierent
tasks in the policy chain, so that the Community administraon makes decisions while the naonal
authority execute them(F 2004: 193f).
Aly, I wll l w l f ly ll ly-
l .3
3.1 Supranaonal Principles and Subordinated Naonal Public Administraons
T EU fl l ; l l
f ly f l y, y E policy
y competence (M 2005: 4, l l). E
EU l f l x f l f f
f EU l j f l : l
ly European Administrave Model. T EU , l, lly l
fly y l
ly w EU lw l. T fl f
f ll f y
j f E C f J (C 1999: 5). Dly ll EU
w f. F , y l lw l, w
lly y ECJ. F ,
flll f administrave capacity, l qly
x l . T w flz w EU acquis to amount
l EU f z f E
w fw jfy l
l (F 1998: 125). Aly, EU
fw w :
Shared principles of public administraon among EU Member States constute the condions of
a European Administrave Space (EAS). The EAS includes a set of common standards for acon
3 T l y l xl . A l f
ll f w lwy l , f
C lwy y f l j wll l l
lwy y C . T lfy l -l f l z l , lyl f f
l; llw f f f y .
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Structuring the European administrative Space | 13
within public administraon which are dened by law and enforced in pracce through procedures
and accountability mechanisms. [...] Although the EAS does not constute an agreed part of the
acquis communautaire, it should nevertheless serve to guide the public administrave reforms in
candidate countries.(C 1999: 5)
N ly w y f EAS l x, l w
y f ly l z y j f
ECJ.
If we aempt to systemise the main administrave law principles common to western European
countries, we could disnguish the following groups: 1) reliability and predictability (legal certainty);
2) openness and transparency; 3) accountability and 4) eciency and eecveness. (C
1999: 8)4
These fundamental shared norms represent blank concepts. Ty l
l -y- y l ly ,
w f . Cqly, l , l
l l. Tf, l
wly. I f , w, ECJ z
y f l . T ly fl f
l EU f w l f Right to Good Administraon
(Al 41) f Charter of Fundamental Rights and Freedoms L Ty. T
l wll ECJ f l f . T ll w
f l ly w EU, I wll y w ll f l w l l l w f ECJ -
z .
F, w EU lw l? D l
ll f , l
lly. T fw xl: ly f l B, F S
f ll wl l
l A, Bl Nl, ly l f ll . Rl
f lw f f jl l f F, Gy Sw
x y lz , wl B D y
l. T ly w xl w w y l ly
. Oll w l f EU M
l Blx , F, Gy Ily ly
f l f l f
4 F (2004) fllw l: T Cy ll y w l
l, w ll , l ly ly
. T l l: (1) lly; (2) ly; (3) y; (4)
ly; (5) y ; (6) ll y; (7) l x; (8) f-
l . S l : (1) ; (2) y f l; (3) l l f ; (4) f
f; (5) y .
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(Zll 1998: 144). G f qlly l l l
w f l f lw l f y
y ll l ll lly l
l y. T, f f l w ly y l
f x- l .
S, w l ll w l EU ?
R w, lly l ll y f EU
l f . Sll, ECJ ly, y l,
j l lw l w E U (C
1999: 17). Wl Cy y ll ly l, C lw
l f l l. Tf, j f
C f l, .. -l, lw U (C 1999: 17),
l f f l lw l l y l f . Tw l f l l
ll f EC lw. T z f l
ll f . I l f fy ll f EU
jl w f z, Francovich (ECJ 1991: C-6/90 C-9/90) l
l f lly f l w EC lw. T l wy f
l f l y, w C f.5 S f
lly . S
Francovich, the Court has found that naonal governments may be held liable for laws, judicial
decisions, and, [...], administrave measures that infringe European law. The court has developed a
law of administraon which applies not only to the Commission, but also to naonal bureaucracies.
(B 2004: 5f)
H, C l ly l
y w EC lw . A wll f ly
ll ly- EU , l f l l l
f l lw, w C l qlly
l f , ly l f l
x f .
T ly l f w
C y f l l (Nzz 2001: 3). I
l 1970 l f f f f f w .
Ul , w f f ly l , w
l x f Cy f f w ly. T
5 Pl y f l Cy l
l lw l l j w l w ,
ly l f ql ( f Cy l ) lf (ly f l x Cy l ) (ECJ 1976: 33/76,
Rw-Zlz EG . Lw f Sl).
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Structuring the European administrative Space | 15
f l llw l ly y
l f l. I 1980 ECJ (149/79 C . Bl)
for the purpose of reserving a post to naonals, employment in public administraon had to be
dened as employment characterisc of the specic acvies of public administraon as implyingthe exercise of powers of public law and safeguarding the general interests of the state or local
authories(Zll 1998: 140).
T l f l f l .
Al EU-w f lw , l l f
f q.
The rst consequence is the obligaon to proceed to a classicaon of jobs and careers in order to
determine whether they should be opened up or not. Then a series of steps have to be taken in order
to ensure mutual recognion of qualicaons and professional experience in public services, which
can lead to a reappraisal of exisng systems of training and mobility. Furthermore possibilies have
to be created for internaonal mobility of civil servants within the Union: this has an impact on the
organisaon of secondments, social security and pension schemes.(Zll 1998: 141)
T q f j l l l l
(f w: B l. 2001). I , l ll
f EU l ly l , ECJ lw
flly ql .
T f acquis f ECJ l
f l lw l. I l EU,
l Cy lw w l vis--vis xl . I
f w y l q
w , l w
ly x- y ll w . T f E
w f ll (My-Sl 2009: 10) f
lly -x l l ll f l l
EU.
D - EU ly z , w
l w Cy lw, w ly y l l
l , horizontal administrave capacies.
Aly, administrave capacityw y E Cl f M
1995 w f w C 1997Avis l
f (Vj 2000: 16). T q l Rl R
ll f zl w . W l y w
l l f q, zl y, yy w
f (D 2005: 80). Y, f acquis zl ,
C l l l . I f
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l EU l , EU l xl .
C w Support for Improvement in Governance and Management (SIGMA) ,
OECD Public Management Service (PUMA) y EU f -
accession program Phare, l f f y
. T w -ll SIGMA l
l l f y zl y ,
w l f y y f (Vj
2000: 17). T SIGMA l l f zl
f . T w l w - l acquis
w l fl f l w
C w ly w. T, D Gl (DG) El C
x f w (w ly l D Gl
f A!) f EU , f -EU , OECD SIGMA (l
DG El, w x S 2007). Al f z l l, f ly lz w
w l ll w l z f SIGMA
l EU (D 2002: 182). T, l
w f xl l de facto , EAS
f l llly l zl
l l .
I , f E , C ll l
lw l w . S w l f zl
y ly w l f EU f
EU. B y ly, EU w w
f l l l
flly EU w ll fw f l
EU acquis ly. W EU, fll fl y
l ly y f l l l l
f . By , ECJ lw l l. T f
l f l y fy ll f l
y ll f ly
ll f w ly EU lw.
3.2 Supranaonal Targets and Naonal Brokers
R w EU w, ly
l x wl . G EU
l f , ly - qly f -
ly z l z
f f w fl f f . T
f EU z , , ,
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Structuring the European administrative Space | 17
f ll f w- y, European Public Administrave Network
(EUPAN). O , w l f ,
f Common Assessment Framework(CAF), lf- l
ll ll f z ly . I wll y EUPAN
CAF ll w wy w EU
. M, w- -ll w f , ly
the White Paper on Governance (C f E C 2001) w
the Lisbon process wll Beer Regulaon agenda (Cl f E U 2006),
l l lf w C ly w
. I w f w f , EU xlz
l ly y
q w (Bzl 2009; S 2007). Y, ly f w l
y l f l .
EUPAN lf fl w l f x f w, x
f, qly f E l l
w l f L y y l
z f l , y w ( , ,
qly, -) w y
E l .6 EUPAN w f lf f 1970. S 1991,
l l ll f l l w
l f l . O l ll, EUPAN w
w : (1) HRWG Human Resources Management Group w 1987
l lly ll f l l f l f
f , - f HRWG NCP Naonal Contact Points that are to help the
f CAF l; (2) IPSG Innovave Public Services Group qly
f l l f l f w l
, ly, CAF IPSG; (3) E-GOV e-Government Working Group
x f w, x , lly
l f -. T , l w EU C
EU-ll. F, DISPA Group of Directors of Schools and Instutes of Public
Administraons w EUPAN ll, wll DBRR Working Group of Directors
and Experts for Beer Regulaons w j () fl x f
x j w ly , () f f
U beer regulaon l w
EU Ml Cl. T l DBR fl , l ly
y Py .
I l w ll- w flz z,
z ll l wl fl f
6 S EUPAN w ://www../3/70/ (l 25 M 2009). F f wl EUPAN H, y F EU Py 2006 y -
q P Py 2007, l f.
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E Pl A Nw (EUPAN) (E Cl 2008). S fl
f fl ll f EUPAN l l w
lz f E U. M ly, EU Py T
( w S) l f l f EUPAN
l y EU y . M, E C
28 f fl w l l. F y--y
w, w, C European Instute for Public Administraon (EIPA)
EUPAN w , l l . EUPAN f lly l
f EU ly- f fl l. T ll
f l x l f EUPAN f f
f l l . A EUPAN lf, ll l w,
l w f w, wll l f w f
l f M S fy. T w
f ll f l [...] f wl y ly f EUPAN w y
f l (EUPAN 2008: 4).
A f, Common Assessment Framework(CAF) w EUPAN. CAF
lf-l l ll z f ll f l ly
. T fw
is a Total Quality Management (TQM) tool inspired by the Excellence Model of the European
Foundaon Quality Management (EFQM) and the model of the German University of Administrave
Sciences in Speyer. It is based on the premise that excellent results in organisaonal performance,
cizens/customers, people and society are achieved through leadership driving strategy and
planning, people, partnerships, and resources and processes. It looks at the organisaon from
dierent angles at the same me, the holisc approach of organisaon performance analysis
(E I f Pl A 2006: 2).7
A l 2000, w l w f CAF Resource Centre
EIPA, fllw 2006. A 900 w y E
f 2000 2005. T l l f CAF y j
l xly 1000 f ll f z
/x/, y/l, /, l/ll ,
l /y. Exl f Pl Tx O A Sy G Ay,
S Ny Sl, Sw M A Sl, E Al R C,
Il Mly f Fz B B Cl O (Bzl
2006). By f l , f CAF ly f Cz
Rl (l ll), Sl (l ll) R. I jy f
y l , w A, E, Fl,
Il, Ily, L, Nl, Pl, UK lly ly. T w
f CAF f w l w f
7 EFQM l l l CAF, l x f ISO 9000.
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Structuring the European administrative Space | 19
z (S/Tj 2005: 43f). M, lf-l
ly f f f, w f l l
f l f z .
T f l wly ly w f w f ly l Cy (C/
R 2007). O l l f C EUPAN
CAF. Y w w f -, w l lz l
ll ll f l (S/J 2008). Dly w l
is the Regulatory Impact Assessment(RIA), w EU Beer Regulaon Iniave
y NPM . I ly f f RIA Rll (2005) Pll
(2001) l l f l l .
To sum up then, the language of RIA has produced a community of discourse for policy-makers and
has smulated the introducon of some instruments which are labelled impact assessment but
which in some cases exist only on paper and in other cases disguise dierent pracce under the
same label. Diusion at the level of talk has not yielded convergence in acons and results to
use the classic terms suggested by Brunsson (1989) and, more recently, Polli (2001). (Rll
2005: 930)
M flly ll, I Kl (2006) l
w f , y w ,
l f y f
. F , f w f y l xl wy w- l l y - y w l
f l w (Bzl 2009), l w l,
l ll.
I , ly l , EU l fl
w l
. T j l ll l f U f
L Sy f f z y
w wlf . T
w w l l l . T
w w ly l f EU w xl z
j z ly fl ly f w l
l . M lly, f l
Cy , w l w l l .
T ql f x l x
w, f w f y, w l w l
l .
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3.3 Supranaonal Prescripons for Naonal Execung Bodies
Aly Ty f R w C w f w l direct
administraon l f E ,
l (B 2004: 4). D l ly ly l l
l l l ll. I , w
EU xl w l l . Ex l l
U l ; , l . D
l f C l , l
C l f l. T xl
, ,
l l fly y l y. H,
Community law is clearly making its way into naonal administrave systems. In some cases the
impact is a direct one, having a direct eect on how public administraons funcon: the instuon of
new bodies; spulaon of the composion of such bodies; imposion of clearly dened procedures
(for example for public procurement); redenion of the very concept of public administraon in
order to apply certain Community provisions.(Nzz 2001: 7)
D f w f EU l,
ly- ly l Cy w ll l
w fl f l EU ll l ll f l
l ly f.
O z f , w
f f w, w l Cy l public
procurements and compeon law C l
(Zll 1998: 140). A f Communitys
nancial interests wll newer EU policies l lly x
l f l l f w C
l (F 1998: 113).8 Al ly l
f w Cy l (.. ) zl l (.. -
), f
8 T l l l f f l f (l,
) ( l, , y ); -
l f ; ly f l; l w
x; l f y l l l
CAP; ; l f l fy w l ;
l f ; ; l f
j, x y f f f lw,
l l l jl -; ; l l, l
f f f Cy f. I , C l w l xl l f
l l . (F 1998: 114)
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Structuring the European administrative Space | 21
an asymmetry between the regulaon of market-related administrave proceedings and other types
of administrave proceedings has developed. Signicant dierences have emerged, depending on
the area of law applicable, dierences which demand common general principles, able to serve a
unifying funcon and ensure systemac coherence and uniformity(F 2004: 196).
T yy y fServices of General (Economic) Interest(SGEI/SGI) w
w ly Ty f R. A f SGEI/SGI w Ty f
A (Al 16, EC) l fl f l
( l C f E C 2001). A f l
qlly wll- y y f f l w
l y E Cy (M 2005: 4). Oly, y w
fll l y f SGEI Cy lw l f l
l f l l w , l
y ly ( f l ), l y ( f l). F C, SGI lly l l l (C f E
C 2006). I , l f l SGEI/SGI y C ECJ
ly f l y f
x l f l l . T C z
flll l l f EC T
, l, y l l ly l lly f
l (C f E C 2004). T w,
f f l w SGEI/SGI EC f l f
- , l l f f l l
.
T l l fcommon administraon, w C l
f, l l lz . T
f l f y l
l: (1) joined administraon (l l ly j/y l
ll), (2) decentralized administraon (lll, -xl ll w w ll/
l y y), (3) regulatory concert(l z f l
l ) (C 2004: 22). I l f j y ly
l l ll. Aly, ly w y f
x l w C 27 (1), w fllw y
w l l l y f ll (2 3). I , l l
agencicaiton opens up for new partnerships and autonomous contracts between execuve bodies
and the EU level (parcularly the Commission) and semi-detached (from ministerial departments)
regulatory authories at the naonal level. Thus naonal agencies become, as regards their policy
formulaon and implementaon acvies, to some extent parts of two administraons; on the one
hand their respecve naonal governments, on the other hand an emerging Union administraon
(E 2007: 2).
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22 | KFGWorking Paper No. 5 | September 2009
Nly, l l w
U lly f x l l . I y f
l f w- E . A C E (2008:
655) , l l l f E x lly
jy. O , C l x
, , l ly f l f
l l w w l ll.
A y l l x w f w
wl ly w acquis, w l l
SIGMA w l (My-Sl/Gz 2009: 6). Tf,
[t]he main requirements associated with the bureaucracy criterion emerged as sectoral capacity
to implement sectoral acquis; the development of European integraon co-ordinaon structures;
horizontal reform of the administraons including civil service laws and a strategy for comprehensive
public administraon reform; and, nally, ability to implement(D 2002: 179).
I w, y f ly ly l. I w
x y C, l
w , f y l w ly l
ly w C l yl (B/
D 2004: 142f; S/K 2004). T f C
All Sl ly, SAPARD ISPA lz . Nly,
f w f f f. Iq, l f - l l SAPARD w ly
ly f y w y.
I ll, w x f U , w lly
l l , l
f l , l . D
EU w l l f l
f. Sl f l l f l ly
w fl EU ll l f l l ll. I
l x, l y l w l l
y l . T l l w y
EU l f ll . I
y ll l l
l. T l fl
l l l, w ly lly f
w w y f EU .
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Structuring the European administrative Space | 23
3.4 Naonal Responses of Independent Implemenng Agencies
T l l l l EC
ly l l . A l
f l . T , , w,
, f l l
lly ly w E
(Tl/E 2007: 293). I l l f ll w
focuses on Europeanizaon ly f . Ay f
l l l
f fly f ll . Cqly,
f f l l ly- . I
w f Kll:
[t]he level of administrave adaptaon cannot be directly deduced from the respecve policy (where
one regulaon facilitates the naonal adaptaon more than another) nor do systemac dierences
exist in the countries regarding their capability to adapt. In other words, domesc change and
persistence follow no simple country-based or policy-based logic. As a consequence, we not only
observe administrave convergence, but also (and to a similar extend) divergence or persistence
of administrave dierences across member states(2001: 5).
W w ly w EU ly j y q l
w ly y. I wll f ly f
y f w f .T fllw l l l f E
.
D f EU-ll (Ol 2002), f l ,
w l f ly l y indirect administraon. T
f ly l f f EU . I w l
l.
The rst principle is the autonomy of naonal administrave systems, and thus structural
subsidiarity. Day to day management of Community law its concrete applicaon is conveniently
entrusted to the appropriate naonal administrave laws and relevant authories, which become
the outer branches of the Communitys administraon.(Nzz 2001: 5)
T l l y q l,
i.e. ecient, eecve and uniform enforcement of Community provisions. Domesc administraons,
by virtue of a duty of loyal co-operaon under the Treaty (arcle 10), are required to take all
necessary steps to ensure full implementaon of these provisions. Eecve implementaon of EC
Law (the principle of eecveness) is an obligaon imposed to Member States by the Treaes and
its fullment is veried by the European Court of Jusce on a case-by-case basis.(Nzz 2001: 5f)
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24 | KFGWorking Paper No. 5 | September 2009
T l Cy . I ll
f f l . Aly,
in the rst thirty years aer the Treaty of Rome, the common wisdom was that European
administrave law did not exist. [...] Implementaon of direcves, regulaons, and other formsof Community legislaon was the responsibility of naonal administraons subject to their unique
tradions of constuonal and administrave law, in what is know as indirect administraon
(B 2004: 3f; l C 2004).
I f l per se. O y,
. T wy ly l
lx ly l f y / l.
Taking a closer look, then, at the enforcement of Community law, there is no convergence on the
means of applicaon [...]; what counts is to ensure that applicaon meets certain standards of
eecveness. That this is both a radial approach and an eecve one hardly needs emphasis.
(Nzz 2001: 6)
I l f ll l ly w l
ll wll - yl Ez, wl ll l
l.
[A] main nding (although with many nuances) is that there has been no revoluonary change in
any of the naonal systems and no signicant convergence towards a common instuonal model,
homogenizing the domesc structures of the European states.(Ol 2001)
Sl l f l l f l l l
lly
compable with the maintenance of disnct naonal instuonal arrangements and there is even
reconrmaon and restoraon of established naonal structures and pracces. In sum, structural
diversity persists among the core domesc structures of governance in spite of increasing contact
and compeon between naonal models. Established naonal paerns are resistant but also
exible enough to cope with changes at the European level(Ol 2001).
Ul lwy C SAPARD ISPA, l f
l y l w l w l
lly l l f y l f
l. T Twinning w l l ll. Al
f EU l, f w y
f l f EU
l lz (Tl/Tl 2007). A ly w, ly,
l (lly f w ) l
lwy l . Tf, l f f w w
l q l ,
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Structuring the European administrative Space | 25
absence of a clear EU preference, coupled with the fragmented and diverse manner in which
the EU has chosen to police administrave reform in central and eastern Europe, reinforces
the signicance of domesc factors mediang the Europeanizaon of the accession applicants
(P/P 2004: 536).
I , f EU l l f ly- l
ly y f ly .
Tf, w lzl x
f - x. Sll, l y
ly l w l . T y l
lz w l f w
l . C y y f f ; lz
y f f l fl l
f l EU l f l . Il l l y f- f l f f
EU l-ll . El w w
x w l l l lz, w
f l l, w, f f.
4 C: M E E A S
T : wy l x f E wl l ll EU
l ? T q w E
l x ll E ly w
xl f l . N ql l ly
f l ll (Kll 2001: 36). T w f
EU ly, ll w EU w. G
l lxy f j , I wy fw
fy l y f w l l
w. Bl yly, l wy w EU w l
f w y l ll. I l,
w EU l ll , ly l
, l l y f
l f l l EU
ly l. T l f l w
y ll ll f ly .
I EU l l , endin itself through standards
ly means ly l, fw
l l Ez , w f ly l.
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E f l ly , f w
l w l x ll .
Oly f l l f l f ql
, y, w Cy
w l. Tf, lly w l lly x f
dierenated coherence w .
T ly w ly l f l ly
l w E l. F w l , ly
l f l f l w l l,
EU l l. I q, E l f
l f w
ly w f zl
. T ql l ly w, w, jf , f, l f l, fl l .
T C l y l l EU l
xlly . I ll- f E
w . T EAS w l
l f M S y, l, lw l f
l y y f EU
M (C 1999: 6). O l l x, E
f l w
f l .
Oly, f q f y ,
l f lyl fw w l
l . T l z
f l y l f w y
w w l l q.
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Structuring the European administrative Space | 27
L
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T K-F - E A Ex
I R
T Kll-F (KFG) w f l- y G R F 2008. I - f KFG lly l
w l w y w ll f j .
T Kll-F T Tf Pw f E E Bl-B- lz w - . I x l f EU - f , lyz f l xl :
Iy Pl S
Cl, Cly By
C Rl E Exl Rl