Exploring the nature of the beast: International relations theory and comparative policy analysis meet the European Union

Recent work on the European Union (EU) indicates an emerging consensus that the boundaries between the 'domestic' and the 'international' spheres, as well as between the 'state' and 'society', have to be crossed when conceptualizing the EU. This article starts with reviewing the controversy between neofunctionalism and intergovernmentalism, arguing that it lacks some categories necessary to capture distinctive features of the EU. It then presents a framework combining insights from work on transnational politics by international relations scholars, on policy networks and Politikverflechtung (interlocking politics) by comparative policy analysis, and by historical institutionalism. Propositions are generated on the institutional and structural conditions under which network analysis is better suited than intergovernmentalism to capture the EU policy-making process. Finally, the article argues that social constructivism has to be taken more seriously in the study of the EU and that network analysis should move beyond rational choice models and incorporate theories of communicative action. More work is needed on the role of ideas and principled beliefs in the EU integration process.