Mind the gap! European integration between level and scope

Abstract Explaining the ‘task expansion’ of the European Community has been at the heart of neofunctionalism. While previous studies have focused on the transfer of competencies from the national to the European level, this paper also looks at the procedures according to which policy decisions are taken at the European level (scope). Distinguishing between scope and level reveals an interesting puzzle. It is common wisdom that the integration of external and internal security has seriously lagged behind. Since the Maastricht Treaty we have witnessed a significant task expansion of the EU into these two last bastions of national sovereignty. But while the achieved level of integration is rather similar, the scope of integration differs significantly. Justice and home affairs have subsequently been brought under the supranational framework of the first pillar. Common foreign and security policy and European defence policy, by contrast, are still firmly confined to the realm of intergovernmentalism. This disparity between level and scope of European integration poses a serious theoretical challenge–not only to neofunctionalism.