Table Of Contenttime's
Wwë-Bt
Pile
PATTERNS OF CHANGE
IN THE EUROPEAN
COMMUNITY
Leon N. Lindlierg
Stuart A. Scbemoold
This book is about European unity—its
prospects and its problems. In partic
ular, this is a study of what is referred
to as the Com non Market, or, as we
shall call it, the European Community.
Since its founc ng in the early 1950's
the European Community has ev
idenced an impressive capacity for
both growth and achievement. More
over, regardless of what the Commu
nity may have already achieved and
whatever may be the standards used
to gauge the past, the system is mani
festly inchoate. It is not its past that
is important but its future. Will it en
dure—and in what form? The authors
attempt to incorporate the diverse
findings and often competing theories
about European integration into their
own distinctive analytical approach.
This approach focuses on coalition
formation as the agent of growth. The
authors posit a basic model from the
operation of the Community system.
They specify what seem to be the crû:
cial factors accounting for these dif-'
ferent patterns, using actual case
studies to illustrate the patterns and
to detail the conditions under which
each is likely to occur. On this basis
they seek to make tentative projec
tions about the future of Européan in
tegration.
(continued on back flap)
EUROPE’S
WO ULD-BE POLITY
PATTERNS OF CHANGE
IN THE EUROPEAN COMMUNITY
LEON N. LINDBERG
University of Wisconsin
STUART A. SCHEINGOLD
University of Wisconsin
PRENTICE-HALL, INC.
Englewood Cliffs, New Jersey
TO OUR PARENTS
© 1970 by Prentice-Hall, Inc., Englewood Cliffs, N.J.
All rights reserved. No part of this book may be reproduced in any form
or by any means without permission in writing from the publisher.
This book was written under the auspices of
the Center for International Affairs, Harvard
University.
P-13-291997-4
C-l 3-292060-3
Library of Congress Catalog Card Number 76-110125
Printed in the United States of America
Current printing (last number):
10 9 8 7 6 5 4 3 2 1
Prentice-Hall International, Inc., London
Prentice-Hall of Australia, Pty. Ltd., Sydney
Prentice-Hall of Canada, Ltd., Toronto
Prentice-Hall of India Private Limited, New Delhi
Prentice-Hall of Japan, Inc., Tokyo
CONTENTS
1 THE ROOTS OF UNION 1
2 GROWTH AND ACHIEVEMENT:
AN OVERVIEW 24
3 THE POLITICAL SYSTEM
OF THE EUROPEAN COMMUNITY 64
4 ALTERNATIVE MODELS
OF SYSTEM CHANGE 101
5 AGRICULTURE AND TRANSPORT:
FORWARD-LINKAGE VERSUS
OUTPUT-FAILURE 141
6 THE GENERAL CUSTOMS UNION AND
THE COAL SECTOR: EQUILIBRIUM
AND SPILLBACK 182
7 BRITISH ENTRY AND THE BIRTH OF
THE COMMON MARKET: TWO STUDIES
IN SYSTEMS TRANSFORMATION 221
8 THE FUTURE OF THE EUROPEAN
COMMUNITY: THE PERMISSIVE
CONSENSUS 249
9 THE FUTURE OF THE EUROPEAN
COMMUNITY: EQUILIBRIUM AND
BEYOND 279
INDEX 311
PREFACE
It is our conviction that the post-war movement in Europe
toward economic and political integration has produced
a substantially unprecedented phenomenon. Six countries
which had only recently been locked in bloody conflict
have established among themselves a common market and
an enormously complex trans-national collective decision
making system to handle the problems associated with it.
In the process of so doing they have pioneered striking de
partures from both the goals and methods typically pur
sued by states in their relations with each other. The sys
tem that is emerging from this experiment has potentially
vast implications for domestic politics in each of the coun
tries involved. It also has had a substantial impact on the
world at large, because successes in increasing economic
and political capabilities have threatened the interests of
some and provided models to be imitated for others.
There is no lack of books and articles on European
integration and the European Community. Theories and
interpretations, histories and detailed analyses, praises and
iv
PREFACE V
condemnations have proliferated. In this vast outpouring, we sense a need,
however, for a theoretical and conceptual framework capable of providing
an overall perspective on the often conflicting theories, descriptions, pre
dictions, and evaluations.
It is thus in the spirit of synthesis that we offer our framework of
analysis. We have chosen to focus on the question: once an enterprise like
the European Community is launched, what accounts for its subsequent
growth, stabilization, or decline? After defining and characterizing the
Community as a political entity—as a “would-be” polity—we construct
some analytic models to help us understand how and why changes in this
political system occur. These are developed in a series of case studies and
the hypotheses that result are used to make tentative projections about the
Community’s future.
Because it represents an effort to synthesize, this is not simply a book
about the European Community, but also a book about theories and
theorists of European integration and of international integration processes
more generally. By confronting different theories in the context of an overall
analytic framework, as applied to a specific concrete example of integration,
we hope to demonstrate the extent to which theories which appeared to pro
duce contradictory diagnoses and predictions did so not because of different
findings of fact, but because they were focusing on different aspects of a
larger whole.
The social scientist often flatters himself by thinking that he has de
veloped generalizations of potentially broad explanatory and predictive
power. We have certainly had this as a prime goal of our efforts in this
book. Consequently, it is of some embarrassment to note how often refer
ence is made to unique “factors” like a General de Gaulle. Perhaps this
was a product, in part at least, of being too close in time to always dis
tinguish the particular from the General. Indeed, anybody who writes about
a phenomenon that is contemporary and that changes constantly is bound
to encounter problems of perspective and of timing. We sought in our se
lection of concrete examples and case studies to present enough substantive
detail to give the reader the necessary background to bring the abstract
change models to life, but without any intention of being comprehensive.
We deliberately set out to avoid writing a book that would be quickly dated
or overtaken by events. Nevertheless, de Gaulle’s unexpected departure
from power in the spring of 1969 caused us some discomfort and we had
to make numerous changes of verb tense in the galleys. We can only hope
that our analytical perspective and the projections that flow from it are
more “independent” of such idiosyncratic events than our syntax.
The original idea for this book took form one summer, longer ago than
we like to remember, as we were both doing research in Brussels, “would-
VI PREFACE
be capital” of Europe’s would-be polity. We have also both had the oppor
tunity to develop our thoughts about the European Community as Research
Fellows in a congenial and stimulating environment at the Center for Inter
national Affairs at Harvard. Through the period that we have been working
on the book our thinking has evolved considerably as we tried out various
ideas on our colleagues and worked them through in undergraduate courses
and graduate seminars with our students. In particular, we would like to
express our profound debt to our friend and former teacher, Ernst B. Haas.
He commented in detail on the entire manuscript and gave us a very hard
time indeed! He cannot be blamed if we have not gone far enough in
response to his prodding and criticisms. Important contributions have also
been made by Theodore Marmor, Joseph Nye, Jr., Richard Hamilton,
Harold K. Jacobson, and Lawrence Scheinman. We are also grateful to
the Social Science Research Council for its assistance. Without our manu
script manager, Lee Scheingold, who edited, researched, typed, and organ
ized for us, the pieces might never have fallen into place.
Our sense of what the European Community is in its essentials, what
makes it work, what potential it might have for the future, was forged in
several lengthy stays in Western Europe. Between the two of us we have
logged something like four years or more in the field since 1959, during
which time we have interviewed hundreds of Community and national
officials, parliamentarians, interest group leaders, businessmen, farmers,
lawyers, and journalists. It is to them that we owe perhaps our greatest debt.
CHAPTER
1
THE ROOTS OF UNION
1. IN THE WAKE OF WAR
This book is about European unity—its prospects and its
problems. In particular, this is a study of what is popularly
referred to as the Common Market, or, as we shall call it,
the European Community. The European Community is
a daring experiment undertaken almost two decades ago
by six nations in Western Europe—France, Germany,
Italy, and the Benelux countries.1 After about a century
and a half of national consolidation, these nations set out
to lower the barriers of nationalism and to give substance
to the idea of a united Europe, through the elimination of 1
1 Formally, there are three European Communities: the
European Coal and Steel Community (which began to function
in 1953), the European Economic Community (Common Market),
and the European Atomic Energy Community (which com
menced operation in 1958). While based on separate treaties,
these projects have the same membership and common institu
tions, and can therefore be properly referred to as the European
Community.
1
