Building European Union capacity to manage transboundary crises: Network or lead-agency model?

Abstract

In recent years, the European continent has witnessed a substantial number of "transboundary crises" - crises that cross geographical borders and affect multiple policy domains. Nation states find it hard to deal with such crises by themselves. International cooperation, thus, becomes increasingly important, but it is not clear what shape or form that cooperation should take. This article explores the growing role of the European Union (EU) in managing transboundary crises. More specifically, it reflects on the different ways in which the expanding contours of the EU's emerging crisis capacity can be organized. Using three "performative dimensions" - sense-making, coordination, and legitimacy - the article discusses the possible advantages and disadvantages of a decentralized, network model and compares it with a more centralized, lead-agency model. It concludes that the current network model is a logical outcome of the punctuated and fragmentary process through which EU crisis management capacities have been created. It also notes that the shortcomings of this model may necessitate elements of a lead-agency model. Such "agencification" of networks for transboundary crisis management may well lead to a hybrid model that is uniquely suited for the peculiar organizational and political creature that the EU is.