Linking Disconnected Spaces or Venue Shopping? Trade-Offs in Participatory Opportunities in the EU

Abstract

This article discusses why national civil society organisations (CSOs) use or abstain to use the participatory opportunities that the EU has developed in the last years. This is done by analysing the role of French and Spanish civil society groups in the debates on participatory democracy during the drafting and the referendum debates of the European Constitution (2002–2005). The paper departs from existing assessments of the role of national civil society in the Convention and demonstrates that national organisations built on their expertise on certain EU policies, on access to EU-level political actors and on contacts and alliances with other CSOs. It also differs from previous studies in finding that participation does not entail sharing the interpretive frame promoted by the EU. The finding that access opportunities do not fundamentally influence the frames of the organisations is related to their ability to strategically choose to participate in European and national venues. The paper finds that because of their scepticism on the constitution's participatory framing, French organisations preferred a stronger role at the national level, whereas Spanish organisations did not have real incentives to develop a campaign at the national level. While it is expected that dialogue with CSOs can contribute to bridging the gap between the EU and its citizens, this paper finds that the institutional setting provided incentives for national organisations to get involved only in one of the levels rather than to link them.