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Furthermore, a multi-level governance approach to areas other than cohesion policy could not be expected to come to such firm conclusions. Its use as a tool for analysing EU decision-making is therefore not unproblematic. Multi-level theorists have recognized that, even in the area of cohesion policy, regional mobilization could be considered largely symbolic. It is significant that, in the 1993 reforms of the structural funds, member states were considered to have regained much of the autonomy that they had formerly lost vis-à-vis subnational authorities (Hooghe and Keating, 1994).

In Robert Putnam’s (1993) two-level game framework, national governments seek to maximize their ability to satisfy domestic pressures, while minimizing any adverse consequences at the EU negotiating table. A two-level game approach thus regards negotiations at EU level as an attempt to find overlap between negotiated domestic ‘win-sets’ which can evolve during negotiations, where the win-set is the set of all possible agreements at interstate level that would gain the necessary majority support domestically (that would ‘win’).

The political decision on enlargement was speedily taken, although the Commission stressed the need for adjustment on both sides. Key member states had shown concern at the time of Spain’s application, for example regarding Spanish agriculture (Europe, no. 2280, 5–6 September 1977, p. 7), fears shared by France, Germany and Italy. However, in the Council of Ministers on 20 September 1977, national representatives all supported the political objectives of the Spanish application (Europe, no. 2291, 21 September 1977, p.

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