The anatomy of autonomy: Reassessing the autonomy of the European Commission

Abstract.  The European Commission (Commission) occupies a pivotal role as the key executive institution of the European Union (EU). Yet, the factual autonomy of the Commission remains largely unexplored, contributing to contradictory assessments of it. This study reassesses the behavioural autonomy of the Commission, as well as organisational conditions thereof. The article utilises one under-researched laboratory of the Commission: temporary officials (SNEs). SNEs may serve as a crucial test-bed of Commission autonomy due to their ambiguous affiliation towards the Commission. Whereas past studies claim that SNEs have a predominantly intergovernmental behavioural pattern, this study demonstrates that the SNEs blend departmental, epistemic and supranational behavioural dynamics, thereby safeguarding their behavioural autonomy. Understanding Commission autonomy requires that the organisational anatomy of the Commission organisation be carefully considered. The organisational anatomy is measured by considering four independent variables: the organisational composition of the Commission services; organisational incompatibilities across levels of governance; recruitment procedures of Commission officials through a so-called 'submarine' approach; and socialisation dynamics inside the Commission. The autonomy of the Commission is organisationally contingent and not only subject to what has been called 'actors' conspicuous desire for autonomy'.