Linking crises: inter-crisis learning and the European Commission’s approach to the National Recovery and Resilience Plans

Abstract The article examines potential linkages between the management of the Eurozone crisis and the EU’s economic response to the COVID-19 pandemic. It does so by focusing on the Commission and its approach to conditionality-based lending. The analysis employs the concept of inter-crisis learning to argue that the lessons the Commission drew from the Eurozone crisis informed its conditionality-related proposals for the National Recovery and Resilience Plans (NRRPs). By using qualitative data, including eight elite interviews, the article suggests that the Commission derived lessons regarding the design, negotiation, implementation, and monitoring of conditionality programs. These lessons led to cognitive changes within the organisation and to behavioral changes that were reflected in its proposals regarding the conditionality attached to NRRPs. The article contributes to the literature examining the EU’s economic response to the pandemic by discussing the Commission’s drivers and preferences during that period. It also complements the literature on coordinative Europeanisation by offering insights on how the European Commission shapes its proposals on conditionality-based lending; a central element of its relationship with member states when it comes to crisis management. Finally, it discusses the implications of the article’s main thesis for the process of European integration.