Where Does the Buck Stop? Explaining Public Responsibility Attributions in Complex International Institutions

Abstract

AbstractWho is held publicly responsible for the policies of international institutions? Are member states or supranational bodies held responsible or are public responsibility attributions (PRA) untargeted? We argue that in complex policy‐making systems responsibility tends to be attributed to implementing actors. When, however, a policy does not require active implementation, we expect responsibility attributions to be untargeted. To test these expectations, we analyze PRA in the European public for three EU migration policies: (1) border control policies, (2) the distribution of refugees according to the ‘Dublin’‐system, and (3) so‐called welfare migration facilitated by the ‘freedom of movement’ principle. Our analysis corroborates that PRA reflect the structure of policy implementation: (1) PRA for EU border controls target the EU; (2) PRA for the distribution of refugees target member states; (3) PRA for welfare migration are untargeted. The paper thus highlights an accountability gap for policies that do not require implementation.