International Counterterrorism Bureaucracies in the United Nations and the European Union

Since the attacks of September 11, 2001 a complex web of international structures and rules for the fight against transnational terrorism has emerged. However, previous research disregarded the organizational basis of counterterrorism cooperation.

Using the example of bureaucratic actors in the United Nations and the European Union, this study examines how and to what degree international counterterrorism bureaucracies exercise autonomy and perform distinct functions. The book reveals the special ambivalence of counterterrorism cooperation for international bureaucracies, which need to reconcile calls for effective counterterrorism with the need to maintain an impression of technical impartiality in a particularly contested policy-field. They respond to this challenge with different strategies of politicization and depoliticization.

Acknowledgements
Tables and Figures
Abbreviations and Acronyms

1 Introduction
1.1 Counterterrorism Cooperation and International Bureaucracies: Research Questions and Objectives
1.2 State of Research
1.2.1 Research on Counterterrorism Cooperation
1.2.2 International Bureaucracies in International Relations Theory
1.3 Research Design and Methods
1.3.1 The Method of Structured, Focused Comparison
1.3.2 Case Selection
1.3.3 Sources
1.4 Outline

2 Analyzing International Bureaucracies: A Theoretical Framework
2.1 International Governmental Organizations: From Instruments to Actors
2.2 From International Governmental Organizations to International Bureaucracies
2.2.1 The Theory and Practice of Bureaucracy
2.2.2 Transferring the Bureaucracy Concept to the International Level
2.3 The Autonomy of International Bureaucracies
2.3.1 Conceptualizing Bureaucratic Autonomy
2.3.2 Basic Indicators of Bureaucratic Autonomy
2.4 From Bureaucratic Effectiveness to the Performance of Bureaucratic Functions
2.4.1 Problems of Studying Bureaucratic Effectiveness
2.4.2 The Performance of Bureaucratic Functions as Alternative Indicator
2.5 International Relations Theory and Three Functions of International Bureaucracies
2.5.1 International Bureaucracies as Entrepreneurs
2.5.2 International Bureaucracies as Managers
2.5.3 International Bureaucracies as Think-Tanks
2.6 Conditions of Bureaucratic Autonomy and Functions: Preliminary Assumptions
2.7 Chapter Conclusion

3 Terrorism, Counterterrorism, and International Cooperation: Surveying an Ambivalent Field
3.1 Terrorism: Construction and Contention
3.2 Counterterrorism: Prevention and Coercion
3.3 Counterterrorism Cooperation: Functional Governance and Political Contestation
3.4 Chapter Conclusion

4. The United Nations and the European Union in the Fight against Terrorism
4.1 The Organizational Field of UN Counterterrorism Cooperation
4.1.1 The Institutional Framework of UN Counterterrorism Cooperation
4.1.2 The Historical Roots of UN Counterterrorism Cooperation
4.2 From Hegemonic Leadership to System-Wide Effort: UN Counterterrorism Cooperation 2001-2010
4.2.1 Responding to 9/11: The United States, the Security Council, and Resolution 1373
4.2.2 Monitoring Compliance: Early Successes and First Reforms in the Counterterrorism Committee
4.2.3 Broadening Counterterrorism: The Secretary-General, the General Assembly, and the Global Strategy
4.2.4 Adapting to the Strategy: A Pragmatic Response in the Security Council
4.2.5 Implementing the Strategy: The UN System and the Global Strategy
4.3 The Organizational Field of EU Counterterrorism Cooperation
4.3.1 The Institutional Framework of EU Counterterrorism Cooperation
4.3.2 The Historical Roots of EU Counterterrorism Cooperation
4.4 From Acceleration to Incrementalism: EU Counterterrorism Cooperation 2001-2009
4.4.1 Responding to 9/11: A Window of Opportunity for Internal Security Policy
4.4.2 Accelerating Counterterrorism: The Madrid Bombings and a New Momentum
4.4.3 Broadening Counterterrorism: The London Bombings and the EU Strategy
4.4.4 Implementing the Strategy: Towards Technical Incrementalism
4.5 Chapter Conclusion

5. Case Study 1: The United Nations Secretariat
5.1 The Bureaucratic Autonomy of the UN Secretariat
5.1.1 Resources
5.1.2 Leeway
5.1.3 Interests and Culture
5.2 The Bureaucratic Functions of the UN Secretariat
5.2.1 The UN Secretariat as Entrepreneur
5.2.2 The UN Secretariat as Manager
5.2.3 The UN Secretariat as Think-Tank
5.3 Chapter Conclusion

6. Case Study 2: The UN Counterterrorism Committee Executive Directorate
6.1 The Bureaucratic Autonomy of CTED
6.1.1 Resources
6.1.2 Leeway
6.1.3 Interests and Culture
6.2 The Bureaucratic Functions of CTED
6.2.1 CTED as Entrepreneur
6.2.2 CTED as Manager
6.2.3 CTED as Think-Tank
6.3 Chapter Conclusion

7. Case Study 3: The European Commission
7.1 The Bureaucratic Autonomy of the European Commission
7.1.1 Resources
7.1.2 Leeway
7.1.3 Interests and Culture
7.2 The Bureaucratic Functions of the European Commission
7.2.1 The European Commission as Entrepreneur
7.2.2 The European Commission as Manager
7.2.3 The European Commission as Think-Tank
7.3 Chapter Conclusion

8. Case Study 4: The EU Counterterrorism Coordinator
8.1 The Bureaucratic Autonomy of the EU Counterterrorism Coordinator
8.1.1 Resources
8.1.2 Leeway
8.1.3 Interests and Culture
8.2 The Bureaucratic Functions of the EU Counterterrorism Coordinator
8.2.1 The EU Counterterrorism Coordinator as Entrepreneur
8.2.2 The EU Counterterrorism Coordinator as Manager
8.2.3 The EU Counterterrorism Coordinator as Think-Tank
8.3 Chapter Conclusion

9. Conclusion
9.1 Case Study Findings and Comparative Analysis
9.1.1 Autonomy: Resource Dependence, Bounded Leeway, and Pragmatic Interests
9.1.2 Functions: Situational Entrepreneurs, Cautious Managers, and Ambiguous Think-Tanks
9.1.3 Conditions: Hard Constraints and Soft Opportunities
9.2 Rethinking International Counterterrorism Bureaucracies: A Case of “Successful Failure”?
9.3 International Bureaucracies in International Relations Theory: Contributions and Desiderata

References
Appendix: List of Interviews

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