The shadow of the past: environmental issues and institutional learning in EU enlargement processes

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This paper compares the role of environmental issues in negotiating Spanish membership of the European Union (EU) with the ongoing enlargement talks with Central and Eastern European countries. The paper first argues that the EU has recognized a need to change the way in which it has traditionally managed environmental issues in enlargement processes. Second, the paper provides evidence of learning processes at the Community level that could have effected a change in Community approaches to enlargement in the environmental field. However, the paper shows that the fundamental principles and procedures applied in preparing for eastern enlargement match those used in previous enlargement rounds, resembling a largely technical exercise with exclusive focus on the applicants' ability to align with the acquis communautaire and the length of transition periods. The lack of sufficient adaptation or reform suggests that path dependence and institutional inertia have constrained the scope for innovations at the level of policy strategy and institutions, for which the shadow of the past has reinforced established patterns of institutional behaviour and practices. Copyright © 2002 John Wiley & Sons, Ltd.