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The Joint-Decision Trap: Lessons from German Federalism and European Integration

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Scharpf, F. W. (1985). The Joint-Decision Trap: Lessons from German Federalism and European Integration. IIM Discussion Paper, 85/1.


Cite as: https://hdl.handle.net/21.11116/0000-0007-60BB-A
Abstract
Compared to early expectations, the process of European integration has resulted in a paradox: frustration without disintegration and resilience without progress. The article attempts to develop an institutional explanation for this paradox by exploring the similarities between joint decision making ("Politikverflechtung") in German federalism and decision making in the European Community. In both cases, it is argued, the fact that member governments are directly participating in central decisions, and that there is a de facto requirement of unanimous decisions, will systematically generate sub-optimal policy outcomes unless a "problem-solving" (as opposed to a "bargaining") style of decision making can be maintained. In fact, the "bargaining" style has prevailed in both cases. The resulting pathologies of public policy have, however, not resulted either in successful strategies for the further centralization or Europeanization of policy responsibilities or in the disintegration of unsatisfactory joint-decision system. This "joint decision trap" is explained by reference to the utility functions of member governments for whom present institutional arrangements, in spite of their sub-optimal policy output, seem to represent "local optima" when compared to either grater centralization or disintegration.
Der Artikel unternimmt den Versuch, den unbefriedigenden Zustand der Europäischen Integration durch einen Vergleich mit der "Politikverflechtung" zwischen Bund und Ländern in der Bundesrepublik Deutschland zu erklären. In beiden Fällen läßt sich zeigen, daß die direkte Mitwirkung der Gliedstaaten an zentralen Entscheidungen und das faktischen Erfordernis einstimmiger Entscheidung zu suboptimalen Ergebnissen führen muß, sofern nicht die natürliche Tendenz zum "Bargaining" durch einen problemlösungs-orientierten Entscheidungsstil außer Kraft gesetzt wird. Die Voraussetzungen dafür fehlen jedoch sowohl im Bund-Länder-Verhältnis wie in der Europäischen Gemeinschaft. Trotzdem kommt es weder zu einer Entscheidungs-Zentralisierung noch zu einer Desintegration der verflochtenen Entscheidungssysteme, weil die gegenwärtige Entscheidungsstruktur trotz ihrer unbefriedigenden Ergebnisse für die institutionellen Eigeninteressen der beteiligten Regierungen jeweils günstiger erscheint als konkurrierende institutionelle Arrangements.