EU water policy: Uncertain agendas, shifting networks and complex coalitions

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Abstract
European Union (EU) water legislation is now very extensive in scope and has major cost implications for the member states, for the water industry, and for consumers. Although participation in the policy formulation process was fairly narrowly based in the early development of this programme of legislation, more recently participation has become more extended. The EU water policy process is an example of a rather loose and more open issue network or constellation of actors, rather than a closed and restricted policy community. It is, however, possible to identify a core of central actors within this loose configuration. Even so, the agenda setting process remains unpredictable and issues are processed via the interaction of a series of advocacy coalitions which link epistemic communities of scientists (especially toxicologists) into a wider and more visible political world. Because of the high salience of water policy throughout the Union, issue expansion, rather than issue contraction, is likely to remain the norm. The end result may be rather ‘garbage can’ in its characteristics ‐ namely ‘organised anarchies characterised by problematic preferences, unclear technology and fluid participation’.