Bureaucratic Resistance to International Intelligence Cooperation – The Case of Europol

Abstract

This article analyses the gap between government ambitions and actual outcomes in the case of European counter terrorism intelligence cooperation. Specifically, it investigates why Europol has not managed to live up to its tasks despite outspoken government support. Drawing on rational choice institutionalism, the study suggests why bureaucrats might be motivated to resist calls for international cooperation. By examining the process by which Europol has developed as an actor in the counter terrorism field, this article shows how development in the field of intelligence cooperation is not exclusively the reflection of government preferences. It concludes by suggesting that scholars could gain greater insight from a less state centric approach to the study of intelligence. In addition, the article suggests that policy makers cultivate a greater familiarity with bureaucratic factors and that they continually work with those factors in mind.