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Their Members‘ Voice
Meike Rodekamp

Their Members‘ Voice

Civil Society Organisations
in the European Union
Meike Rodekamp
Cologne, Germany

ISBN 978-3-658-02212-9 ISBN 978-3-658-02213-6 (eBook)

DOI 10.1007/978-3-658-02213-6

The Deutsche Nationalbibliothek lists this publication in the Deutsche Nationalbibliografie;

detailed bibliographic data are available in the Internet at http://dnb.d-nb.de.

Library of Congress Control Number: 2013941546

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Acknowledgements
This work would not have been accomplished without the help of many support-
ive and committed people. Above all, I would like to thank my supervisors Jens
Steffek and Susanne Schmidt for their support, feedback and encouragement and
for providing the right mix of guidance and freedom. My sincere thanks go to
Jens Steffek for giving me the opportunity to work for the research project “Le-
gitimation and Participation in International Organizations” and to study a ques-
tion which started to preoccupy me while I worked in Brussels for some of the
organizations I then started to examine.
I am particularly thankful to all those people who participated in interviews
for this project. By sacrificing their time and granting me an inside view of their
organization, they made a crucial contribution to this project. I also want to
acknowledge the funding of the Deutsche Forschungsgemeinschaft, which made
this research possible.
The Collaborative Research Centre 597 “Transformations of the State” at
the University of Bremen did not only provide me with a sunny work space and
a generous infrastructure, but also with an inspiring research environment. I
would like to thank the CRC staff and all the student assistants for their support.
I have greatly benefited from the discussions in the forums of the Bremen
International Graduate School for Social Sciences BIGSSS, which welcomed me
as an affiliated fellow. In particular, I would like to thank Christof Roos, Lena
Laube, Christian Reisinger, and Luicy Pedroza for spending endless nights
around wine, olives and stacks of paper, debating all facets of this work. I would
also like to express my sincere gratitude to Dawid Friedrich, Sandra Kröger, and
Thorsten Hüller, as well as the participants of the book project “The Challenge
of Democratic Representation in the European Union” for their valuable feed-
back.
I owe a big thank you to the group of women sharing the experience of the
mentoring programme “plan m” and my mentor, Elfriede Regelsberger. The
encouragement and insights from our discussions are bound to last. Thanks also
go to Anika Haverig, Dominika BiegoĔ, Hermann Schunck, and Stephanie Vo-
gel for their thorough reading of my work, offering critical comments and pol-
ishing my English.
A very special thank you is due to my family and friends for their immense
support, encouragement and patience and for offering me opportunities for dis-
traction and recovery whenever it was needed.
Finally, I would like to thank Reinhard for the intellectual challenges and
tremendous moral support. Thank you for the constant encouragement, which
has sustained me throughout this endeavour.
Contents

List of Tables ................................................................................................... 12

List of Figures ................................................................................................. 13

List of Abbreviations ...................................................................................... 14

1 Introduction ........................................................................................... 17
1.1 Two Stories about Civil Society Organisations ............................. 18
1.2 The Research Question .................................................................. 24
1.3 Defining Civil Society Organisations ............................................ 29
1.4 Structure of the Study .................................................................... 31

2 The Representative Role of CSOs in Democracy – Origins of the

Debate and the EU Context ................................................................... 33
2.1 The Contributions of CSOs to Democracy .................................... 33
2.1.1 The Tocquevillian Heritage – Education and Representation ... 35
2.1.2 The Representative Role of CSOs ............................................ 36
2.1.3 Other Democratising Functions of CSOs ................................. 38
2.1.4 CSOs as a Threat to Democracy ............................................... 40
2.1.5 The Representative Role of CSOs and the Sceptics ................. 41
2.1.5.1 Challenging the Representative Role of CSOs at the
Systemic Level – Imbalanced Interest Representation ...... 41
2.1.5.2 Pluralism versus Corporatism – Attempting to Tame
the Beast ............................................................................ 43
2.1.5.3 Challenging the Representative Role at the
Organisational Level – CSOs as “Little Oligarchies” ...... 44
2.1.6 A Democratic Structure: Sine Qua Non for Contributing
to Democratic Governance? ..................................................... 54
2.2 The Changing Perspective on CSOs in the EU Context ................ 59

7
 2.2.1 The Academic Debate – From an Analytical to a
Normative Perspective ............................................................. 60
2.2.2 The EU’s Democratic Deficit – Diagnoses and Remedies ....... 64
2.2.3 CSOs as a Remedy for the Democratic Deficit ......................... 67
2.2.4 CSOs and Representation ......................................................... 72
2.2.5 Critical Voices .......................................................................... 74
2.2.6 European Institutions and CSO Participation ........................... 80
2.3 Conceptualising and Operationalising CSO Representativeness –
Combining Formal and Relational Aspects ................................... 94
2.3.1 Sketching CSO Representativeness – The Academic Debate ... 94
2.3.1.1 The Heritage of Pitkin ..................................................... 95
2.3.1.2 Amending Pitkin ............................................................. 96
2.3.2 CSO Representativeness in the EU Context ............................. 98
2.3.3 A Two-Dimensional Framework for Investigating
Representativeness .................................................................. 101
2.3.4 Analysing the Formal Dimension of CSO
Representativeness .................................................................. 103
2.3.4.1 Organisational Form and Structure ............................... 103
2.3.4.2 Constituency Size .......................................................... 105
2.3.4.3 Geographic Scope ......................................................... 106
2.3.5 Analysing the Relational Dimension of CSO
Representativeness .................................................................. 106
2.3.5.1 Accountability to Members ........................................... 106
2.3.5.2 Member Participation .................................................... 107
2.3.5.3 Member Satisfaction ...................................................... 109

3 Methods, Case Selection, and the CSO Sample ................................ 111

3.1 Methodological Choices: A Qualitative, Explorative Study ........ 111
3.1.1 Why Undertake A Case Study? – Advantages and Pitfalls .... 113
3.1.2 Research Methods and Data .................................................... 117
3.1.3 The Interview Data ................................................................. 120
3.2 Case Selection: Policy Fields, CSOs, and Member
Organisations .............................................................................. 121
3.2.1 Selecting EU Policy Fields: External Trade Policy and
Security and Defence Policy ................................................... 121
3.2.2 The Logic of the Case Selection ............................................. 125
3.2.3 Selecting CSOs: Member-Based Umbrella Organisations
with Institutional Access ......................................................... 129

8
 3.2.4 The CSO Sample .................................................................... 130
3.2.5 Selecting CSOs for Detailed Analysis and Their Member
Organisations .......................................................................... 139
3.3 The CSO Sample and Professionalisation ................................... 141
3.4 The CSO Sample and the CSO Environment – Making
the Connection ............................................................................ 146
3.4.1 The CSO Sample and the CSO Population in the EU ............. 146
3.4.2 The CSO Sample and the CSO Populations in ETP
and CSDP ............................................................................... 152

4 The Formal Dimension of CSO Representativeness ........................ 157

4.1 Organisational Form, Membership Structure, and Formal
Internal Governance .................................................................... 158
4.1.1 Organisational Form ............................................................... 158
4.1.2 Membership Structure ............................................................. 160
4.1.3 Formal Rules for Internal Governance ................................... 162
4.2 Constituency Size and Geographic Scope ................................... 169
4.3 Summary and Discussion ............................................................ 173

5 The Relational Dimension of CSO Representativeness –

Assessing Accountability, Participation, and Satisfaction .............. 175
5.1 The Perspective of EU-Level Representatives ............................ 175
5.1.1 Accountability to Members ..................................................... 175
5.1.1.1 Perceived Accountability Relationships ........................ 176
5.1.1.2 Internal Conflicts and Complaint Procedures ................ 176
5.1.2 Member Participation .............................................................. 179
5.1.2.1 Strategic Decision-Making ............................................ 179
5.1.2.2 Operational Decision-Making ....................................... 180
5.1.2.3 Member Involvement in Organisational Activities ....... 182
5.1.2.4 Frequency of Interaction ............................................... 184
5.1.2.5 Communication Channels ............................................. 185
5.1.2.6 Goals of Member Interaction ........................................ 185
5.1.3 Staff Satisfaction ..................................................................... 187
5.1.3.1 Trade-Off between Member Orientation and
Organisational Effectiveness ......................................... 187
5.1.3.2 Satisfaction with Communication ................................. 191

9
 5.2 The Perspective of Member Organisations .................................. 194
5.2.1 The Relationship between Member Organisations and
the EU-Level Offices ............................................................. 194
5.2.1.1 Reasons for Joining the EU-Umbrella Organisation ..... 195
5.2.2 Accountability to Members ..................................................... 196
5.2.2.1 Internal conflicts and complaint procedures .................. 196
5.2.3 Member Participation .............................................................. 201
5.2.3.1 Level of Decision-Making ............................................. 202
5.2.3.2 Involvement in Strategic Decision-Making ................... 203
5.2.3.3 Involvement in Operational Decision-Making .............. 204
5.2.3.4 Participation in Organisational Activities ..................... 208
5.2.3.5 Frequency of Interaction ............................................... 209
5.2.3.6 Frequency of Receiving Information ............................ 211
5.2.3.7 Frequency of Consultation ............................................ 212
5.2.3.8 Communication Channels ............................................. 213
5.2.4 Member Satisfaction ............................................................... 214
5.2.4.1 Correspondence between Strategic Goals and
Operational Moves ........................................................ 214
5.2.4.2 Trade-Off between Member Orientation and
Organisational Effectiveness ......................................... 217
5.2.4.3 Satisfaction with Communication ................................. 221
5.2.4.4 Satisfaction with Representation ................................... 224
5.2.4.5 Reasons for Satisfaction with Representation ............... 227
5.3 Summary ...................................................................................... 234

6 Synthesis ............................................................................................... 237

6.1 Member Orientation versus Elite Rule ........................................ 238
6.2 Active Minorities and Mass Apathy? .......................................... 241
6.3 Functionality versus Equality of Representation ......................... 242
6.4 Lessons Learned from Comparisons ........................................... 244
6.4.1 In-Depth Comparison of Three CSOs: What Lessons
to Learn? ................................................................................. 245
6.4.1.1 Membership Heterogeneity ........................................... 245
6.4.1.2 Who Rules within CSOs and Why? .............................. 246
6.4.1.3 Models of Representation, Trust Levels,
and Organisational Tradition ........................................ 247

10
 6.4.2 CSO Type as a Determinant of Differences in
Representativeness? ................................................................ 250
6.4.3 Policy Field as a Determinant of Differences in
Representativeness? ................................................................ 252
6.5 Institutional Demands, CSO Representativeness, and
the Legitimacy of EU Policy-Making ......................................... 252

7 Conclusion ............................................................................................ 257

7.1 This Study’s Key Findings .......................................................... 258
7.2 Implications for CSO Participation in the EU ............................. 260
7.3 Implications for the Functioning of the Transmission
Belt Model ................................................................................... 261
7.4 Assessing the Contribution of this Research ............................... 262

References ...................................................................................................... 267

Appendix ....................................................................................................... 293

11
List of Tables

Table 1: Framework for Investigating the Representativeness of EU CSOs .... 102

Table 2: Levels of Analysis and Corresponding Case Study Objectives.......... 114
Table 3: CSOs Analysed in CSDP and ETP ..................................................... 131
Table 4: Type of Organisation and Type of Interest Defended ........................ 132
Table 5: Foundation of CSOs ........................................................................... 142
Table 6: Staff Numbers per CSO Member Organisations ................................ 144
Table 7: CSO Budgets ...................................................................................... 145
Table 8: Types of Organisations Registered to Lobby the EU ......................... 148
Table 9: Distribution of Group Types in the CSO Environment at EU Level .. 150
Table 10: Territorial Origin of Organisations Registered to Lobby the EU ..... 152
Table 11: Country of Origin and Legal Status .................................................. 158
Table 12: Type of Membership ........................................................................ 161
Table 13: CSOs and Numbers of Member Organisations ................................ 303

12
List of Figures

Figure 1: Civil Society Representatives at the European Commission,

DG Trade ........................................................................................ 154
Figure 2: Responsibility for Operational Decision-Making ........................... 181
Figure 3: Member Involvement As Seen by Brussels Staff ............................ 183
Figure 4: Goals of Member Interaction As Seen by Brussels Staff ................ 187
Figure 5: Staff Satisfaction with Member Communication ............................ 192
Figure 6: Occurrence of Conflicts as Seen by Member Organisations ........... 197
Figure 7: Complaint Procedures as Seen by Member Organisations .............. 199
Figure 8: Participation in Levels of Decision-Making as Seen by Members . 203
Figure 9: Member Involvement in Strategic Decision-Making ...................... 204
Figure 10: Member Involvement in Operational Decision-Making ............... 206
Figure 11: Member Involvement as Seen by Member Organisations ............ 209
Figure 12: Frequency of Interaction ............................................................... 210
Figure 13: Frequency of Information ............................................................. 211
Figure 14: Frequency of Consultation ............................................................ 212
Figure 15: Correspondence between Strategy and Operation as Seen by
Member Organisations .................................................................. 215
Figure 16: Existence of a Trade-Off between Member Orientation and
Organisational Effectiveness ......................................................... 217
Figure 17: Satisfaction with Communication with EU-Level Officers .......... 222
Figure 18: Member Satisfaction with Interest Representation ........................ 224
Figure 19: Factors Determining Representation ............................................. 228

13
List of Abbreviations

AD Andorra
AISBL Association internationale sans but lucratif
AL Albania
ALTER-EU Alliance for Lobbying Transparency and Ethics Regulation
ASBL Association sans but lucratif
AT Austria
BE Belgium
BG Bulgaria
CFSP Common Foreign and Security Policy
CH Switzerland
CIVCOM Committee for Civilian Aspects of Crisis Management
COARM Council Working Group on Conventional Arms Exports
CONECCS Consultation, the European Commission and Civil Society Initiative
CS Serbia
CSDP Common Security and Defence Policy
CSO Civil society organisation
CY Cyprus
CZ Czech Republic
DE Germany
DG Directorate-General (of the European Commission)
DK Denmark
EA European Association
EE Estonia
EESC European Economic and Social Committee
EN.CPS European Network for Civil Peace Services
EPLO European Peacebuilding Liaison Office
ES Spain
ESF European Services Forum
EFTA European Free Trade Association
ESS European Security Strategy
ETI European Transparency Initiative
ETP European Trade Policy
ETUC European Trade Union Confederation
EU European Union
ExCom Executive Committee
FI Finland
FoEE Friends of the Earth Europe
FoEI Friends of the Earth International
FR France
GA General Assembly
GE Georgia

14
GR Greece
HR Croatia
HU Hungary
IE Ireland
IS Iceland
IT Italy
LI Liechtenstein
LT Lithuania
LU Luxembourg
LV Latvia
NGO Non-governmental organisation
MC Monaco
MD Moldova
ME Montenegro
MEP Member of the European Parliament
MK Former Yugoslav Republic of Macedonia
MO Member Organisation
MT Malta
NL The Netherlands
NO Norway
NP Nonviolent Peaceforce
PDC Partners for Democratic Change
PDCI Partners for Democratic Change International
PL Poland
PO Portugal
QCEA Quaker Council for European Affairs
RO Romania
RU Russia
SE Sweden
SEA Statute for a European Association
SI Slovenia
SK Slovakia
SM San Marino
TEU Treaty on European Union
TFEU Treaty on the Functioning of the European Union
TR Turkey
UA Ukraine
UK United Kingdom
UN United Nations
UNESCO United Nations Educational, Scientific and Cultural Organization
UNICE Union of Industrial and Employers’ Confederations of Europe
US United States
WIDE Women in Development Europe

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