How the impossible became possible: evolving frames and narratives on responsibility and responsiveness from the Eurocrisis to NextGenerationEU

Abstract

This paper explains how a turn in EU governance which was unthinkable only a few months prior became possible in 2020. Rather than a sudden paradigm shift brought about by the pandemic, we argue that it occurred through successive episodes of reinterpreting the rules and layering on new instruments while fostering investment and fiscal sharing on top of the pre-existing ordoliberal regime. Through a discursive institutionalist lens, the paper supports these claims by studying the frames and narratives of French, German and EU leaders during three rounds of reforms, namely the flexibilization of the European Semester (2014)(2015)(2016), the adoption of the Budgetary Instrument for Convergence and Competitiveness (BICC) (2017-2019), and the adoption of the Recovery and Resilience Facility (2020-2021). The analysis shows that an increased awareness of a responsiveness imperative, going beyond national constituencies, transformed European elites' conceptions of 'responsible' government thus at least momentarily closing the gap between responsibility and responsiveness.

Power and legitimacy during emergency politics: a democratic audit of responses to the Covid-19 crisis

“…Over the next couple of months, however, the creditor-debtor cleavage was progressively diluted by a discourse on 'solidarity' which increasingly resonated amongst European governing elites and publics alike (Crespy et al 2023). Moreover, by mid-May the discourse shifted dramatically to one of solidarity, as France and Germany came out publicly recommending a major grant-based recovery fund which broke the 'no-bailout' rule of the Treaties.…”