The European Pillar of Social Rights: How strategic agency shaped the European Union's flagship social initiative

The European Pillar of Social Rights sits at the fulcrum of EU social policymaking. This article aims to explore its legal and political character, how it was shaped in the adoption process and its place within Social Europe. The key argument is that the Social Pillar builds on but also critically modifies previous initiatives present within the broader EU governance framework, notably in the European Semester. Key political actors like Commission President Jean-Claude Juncker and parliamentary rapporteur Maria João Rodrigues contributed to the adoption process not only through their long-held political views but also by bringing to bear their own critical reflections on previous EU initiatives. Methodologically, the article relies on 15 interviews with policy experts and uses an interdisciplinary approach based on legal analysis, process tracing and actor-centred constructivist theory. The contribution of the article is threefold: (1) it helps to better understand the EU's social flagship initiative and the modifications of its governance approach compared with previous initiatives, (2) it sheds new light on the tensions and opportunities of social policymaking within the EU and (3) it shows the added value of actor-centred constructivist approaches on a theoretical level.