Ownership of national recovery plans : next generation EU and democratic legitimacy

Abstract

The European Union established the Recovery and Resilience Facility (RRF) to address the socio-economic impact of Covid-19. The RRF promotes domestic ownership through increased engagement of national authorities with stakeholders. However, empirical manifestations of ownership remain unclear. This study refines the concept of ‘ownership’ and analyses the engagement of social actors in the formulation of National Recovery and Resilience Plans (NRRPs) in Croatia, the Netherlands and Sweden. The findings indicate that all three countries exhibit limited procedural ownership, while the extent of substantive ownership varies based on pre-existing conditions. Interestingly, higher financial allocation can hinder the ownership of social actors, although low allocations do not necessarily facilitate their involvement. Time pressures and divergent time horizons between EU and national politics further undermine domestic ownership. While the centralised preparation of NRRPs has led to the concentration of ownership primarily in the hands of governments, poor governance of NRRPs could erode legitimacy.