Samenvatting

Dit artikel stelt dat beleidsverandering binnen de Europese Unie (EU) ook voortkomt uit besluitvorming op dagelijks niveau. Om veranderingen aan te kunnen wijzen en te verklaren dient de traditionele rationele keuzetheorie en de oriëntatie op instrumenteel-strategisch handelen te worden aangevuld met een constructivistische zienswijze op discours als bron van verandering.
Met de inzichten van constructivisten en communicatiewetenschappers wordt in dit artikel gekeken naar de voorwaarden en het zich voordoen van deliberatie als discursief proces dat beleidsverandering op dagelijks niveau bevordert.
In dat verband is onderzoek verricht naar een tweetal besluitvormingsprocessen op het gebied van EU-justitiesamenwerking. De ene betreft een casestudie omtrent de onderhandelingen over de totstandkoming van het Europees Bewijsverkrijgingsbevel van 2008. De ander gaat over de onderhandelingen over een Raadsbesluit betreffende
de toegang van politie tot het Visa Informatie Systeem. Uit beide casestudies blijkt dat onder bepaalde omstandigheden deliberatie uitmondend in beleidsverandering zich feitelijk heeft voorgedaan.

ABSTRACT

This paper argues that, in addition to the practice of strategic bargaining, one may very well find in the day-to-day running of the EU decision-making instances where changes in policy outcome result from occurrences of deliberation. Occurrences have indeed been signalled in both the 'EEW' and 'VIS' cases where negotiating parties engaged in reasoned exchanges of views that resulted in position shifts and even agreements on certain issues.
Analysis of both cases demonstrates that in settings where the conditions of 'insulation','intensity' or 'access of non-state actors' were prominently present, deliberation and ensuing progress towards a more reasoned understanding of the issue concerned was more likely to occur. Furthermore, a certain detachment from technical detail, yet sufficient proximity to subject matter, absence of agenda constraints and small-group dynamics made it more likely that discussants were inclined to engage in more open-minded exchanges of views based on reason and argument.
On balance, clearly identifiable occurrences of deliberation-promoting progress in decisionmaking have been found in the institutionally quite diversified and multifaceted environment
of the EU. They can certainly be regarded as representative of other decision-making processes operating under similar conditions, processes of which the institutionally dense EU is particularly rich.
In a way, the occurrences of deliberation identified constitute a path of progressive understanding that is bound to extend beyond the temporal boundaries of a specific decision-making procedure. Reasoned understandings on certain issues achieved in either the EEW or VIS
process were likely to provide a fertile basis on which further reasoned discussion can evolve into other, future decision-making processes. As such the deliberative instances found in the EEW and the VIS cases are of all periods, including the post-Lisbon period, and should be examined as alternative sources of policy change in the EU, irrespective of the timeframe.