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H-NET BOOK REVIEW Published by H-Diplo@h-net.msu.edu (October 2003) Neill Nugent. _The Government and Politics of the European Union_. Fifth Edition. Durham and Basingstoke: Duke University Press, 2003. x + 550 pp. Bibliography and index. $84.95 (cloth), ISBN 0-8223-2978-6; $24.95 (paper), ISBN 0-8223-2993-X. Reviewed for H-Diplo by Kevin Quigley <kevin.quigley@btinternet.com>, Independent Scholar Modern EU Politics in Transition There can be no doubt that the creation and development of the European Union (EU) and its institutions is one of the most significant events in modern world history. An area of the globe characterized by ethnic diversity, and in recent centuries bitter conflict, has sought to cooperate over a range of areas, primarily economic, but also politically, culturally and socially. The European Union was created as an antidote to the two world wars fought in the early years of the century. The first one began in Europe, while the second had powerful roots in the old continent. The Union, ideologically, represented a repudiation of both communism and fascism instead supporting liberal democracy and cooperation amongst its members. However, the Union is not only of historical interest. In 2003, the EU bloc is an enormous economic power that in this field at least can rival the United States. Its development and structure goes right to the heart of questions such as precisely what constitutes a state in a contemporary world characterised by interdependence and globalisation. The European Union, as British Euro-sceptics are quick to declare, is not a state but no observer can deny that it has many qualities characteristic of a state. Finally, the European Union continues to expand both in geographical scope and in its range of responsibilities. Most states in Eastern Europe are either in the process of joining the European Union or wish to join when possible. The establishment of the single currency gives it a powerful new tool for further binding the markets of its members together, even those nations like the United Kingdom who have chosen not to join the initial eleven states who have replaced their currency with the Euro. It is within this background that Neill Nugent's latest edition (the fifth) of his book _The Government and Politics of the European Union_ is so useful. Nugent's book is generally acknowledged as being one of the key textbooks of what is an enormously complex but fascinating subject. The book is divided into five sections. The first one deals with the historical evolution of the Union. Individual chapters cover the historical origins and the politics of each member vis-à-vis the European Union, and one deals with the key treaties such as the 1957 Treaty of Rome. A critic of Nugent's approach would argue that more time should be spent on setting the historical context of the Union including introducing many of the key characters in more depth such as Jean Monnet, Charles De Gaulle, Margaret Thatcher and Jacques Delors. The second section deals in much greater depth with the Treaties, especially the Single European Act. Chapter 5 looks in depth at the dispute between Thatcher and Delors. There is little doubt that Thatcher saw the Act as the first step in exporting aggressive free market capitalism to the mainland. Alternatively, Delors always envisaged the Act being followed by Maastricht with its greater commitment to a more social democratic agenda that included a Social Chapter/Charter enshrining fundamental worker rights. Nugent uses this approach to argue that economic logic has always been paramount in the development of the European Union with political factors trailing along quietly in the background. The third section deals with the institutions of the Union, with individual chapters devoted to the development and working of the Commission, Council of Ministers, Council and Parliament. These are probably the strongest chapters of the book. Each individual institution and its role, limitations and strengths is described succinctly in well-written chapters. For any student of the European Union these chapters represent an excellent introduction to the organisations in question. The fourth section deals with the policies and policy processes of the European Union including individual chapters devoted to the EU budget and the Common Agricultural Policy that is a subject of endless outrage to many Europeans. The final section deals with wider analysis and looking to the future. Overall the book has many of the strengths and weaknesses of a classic textbook. It is exceedingly thorough, well written, conveys a massive amount of information and some good analysis, and is a key textbook for any student of the European Union. Moreover, for academics wanting to gain a speedy understanding of any aspect of EU policy or institutions then the relevant section of this book is both succinct and thorough. Lastly, this book is a useful introductory text for a general reader trying to understand what the European Union is all about. Another excellent feature of the book is its collection of tables, which often get across key information in a way that is both thorough and easy to understand. Two tables are particularly worth mentioning. Table 7.1 lists every treaty and what is created by them and the policy provisions involved. For anyone trying to explain this to students this is essential. Table 14.1 notes every major policy area and roughly explains the extent of EU involvement in each ranging from extensive like trade policy to pooled involvement with states in foreign policy to limited in housing issues. These tables are indicative of the informative nature of the book. The main weakness is the need for a greater historical perspective. The chapters on the evolution of the Union veritably race by and many key debates are dealt with in a cursory fashion. This may be the voice of a historian, but explaining how many of the current debates have precedents within the historical process of the Union might have enhanced the overall quality of the text. For example, a study of De Gaulle's policies between 1958 and 1969 might show the tensions between a powerful state leader and the overall functioning of the European Union. The policies of Schmidt and Giscard in the 1970s shows the beginning of the push towards a single currency and how it was powered by the breakdown of the Bretton Woods system in 1971 and the currency turbulence of the rest of the 70s. Schmidt and Giscard also attempted to address the problems of the so-called "Democratic Deficit" by making the European Parliament directly elected. This deficit has increasingly popped up as a key issue and the Parliament has yet to provide a solution. These issues recur and a good history of the Union might be able to tease out these key aspects of the European Union more thoroughly. Nugent at times comes close to acknowledging this weakness. At one point he acknowledges the role of key individuals like Thatcher and Delors but fails to really develop this point (p. 189). Individuals making decisions based on the world as they see it, and the philosophy and personal factors that drive them make history, even grand international history like this. All the organisations described by Nugent were created by individuals, are run by individuals and held to account by individuals. Elsewhere he notes the importance of three Commission Presidents: Walter Hallstein (1958-1966), Roy Jenkins (1977-1981) and Jacques Delors (1985-1995), yet only Delors is given due attention within the book (p. 297). A second criticism is the failure by Nugent to really address the work and theoretical framework put forward by Alan Milward who many academics and students of the Union regard as the most important commentator on the history and development of the Union. Milward argued convincingly and with a thorough use of archival sources that the creation of the Union and its development stem from an attempt by the key national governments involved in it, especially Germany (initially West), France and the Benelux countries, to protect their own interests by pooling sovereignty. Milward goes as far as to describe the process of European Integration as representing the rescuing of the European State system. Milward sees the problems of the inter war years in Europe as stemming from the stark reality that economic problems meant that many of Europe's states could not function without far greater co-operation. The Nazi solution to these problems was to go on a war of plunder combined with the grotesque racial policies of the Third Reich. After 1945 a more internationalist solution was required. That meant closer co-operation and a willingness to give up key aspects of the state to a supranational body. Milward argues that this is done from the perspective of protecting that state in a global interdependent world. Taken through to its modern equivalent it can be argued that even policies like Enlargement and the creation and aspiration of a single European currency stem from a desire to maintain an antiquated state system. Nugent fails to address Milward's work and that represents a weakness.[1] A final criticism is that the book could have said a little more about the potential future of the European Union. The work of Giscard and the proposals for an EU Constitution represent another major step forward for the process of Integration. Does the future hold a directly elected President of the European Commission? Does the system of EU grants mean that Regional government will become more key to the detriment of national government? In the United Kingdom the Blair government is in the process of allowing referenda in parts of the United Kingdom (e.g. the Northwest) to create elected regional government assemblies. Perhaps, Nugent might have been a little bolder. In conclusion, this is a good introductory text book, that opens up a complex subject to students of the field as well as being an excellent reference book for academics and lay readers. Those wanting to know how arms of the European Union function are unlikely to find a better book. However, those wanting in depth analysis and an understanding of the framework of the Union and be able to place it in its historical context will need to supplement their reading elsewhere. Note [1]. See, for example, Alan Milward, _The European Rescue of the Nation State_ (London: Routledge, 2001).
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