Negotiating Greece. Layering, insulation, and the design of adjustment programs in the Eurozone

The paper sets out to explain why the European Central Bank and the European Commission relaxed their opposition to debt restructuring and fiscal accommodation for Greece in the shift from the first to second adjustment program. Using the findings of the empirical analysis, the paper shows that EU institutions’ repositioning cannot easily be ascribed to the mechanisms that are typically at play in international negotiations, namely exogenous pressures and internalization of new beliefs through persuasion. Instead, the paper argues that a more nuanced and complete explanation of the relaxation of opposition to the change in the program strategy requires taking into account the institutional and temporal dimensions of the Troika negotiations. Specifically, the paper shows that the evolution of European actors’ preferences was shaped by the layering of new crisis management rules into the machinery of the monetary union. Layering allowed political actors in favor of the status quo achieving their preferences under changed external circumstances.