When Ann Mettler started work as a top policy adviser to the European Commission president, one of the first things she said to colleagues had echoes of Ronald Reagan’s famous words to Mikhail Gorbachev: “Tear down these walls.”
Mettler was referring to the office layout on the 12th floor of the Berlaymont, where she took over as head of the Commission’s in-house think tank, the European Political Strategy Centre, last December. She might have been talking about the way that thinking is done in the EU’s executive body.
“Everyone sat in their own offices with the doors closed,” Mettler said in an interview. “That’s not how you work a think tank. A lot of think-tanking is tearing down intellectual walls and opening minds to new ideas.”
Her staff now sits in a communal office space.
Rearranging the desks was not the only way Mettler hoped to shake up the Commission. The new Commission President Jean-Claude Juncker gave her a broad mandate. As one top official put it, “Juncker deliberately picked Ann to upset the ecosystem.”
Ecosystem disruption is not the normal way of doing things in the European Commission, an institution known for the glacial pace of its bureaucracy and an aversion to political provocation. This appointment was a statement of intent from Juncker, who was not only bringing the in-house think tank back to prominence after years of neglect but doing so with an outspoken outsider at the helm.
The Commission, so the thinking went, would have a powerful, German-speaking trio at the top: Juncker, his chief of staff Martin Selmayr, and Mettler.
A year later, things haven’t worked out as expected for this Commission or Juncker’s hand-picked disruptor. The agenda that Juncker ran on for his job last year — cut regulatory red tape, boost transparency, and spur growth and competitiveness — has been overshadowed, if not outright sidelined, by the Greek and migration crises. And the woman so closely identified with that agenda, someone who spent a decade pushing to change Brussels, is finding out first-hand how hard it is to do that.
The questions on many peoples’ lips are: What exactly do Ann Mettler and her team do, and does anyone care?
Insider’s outsider
The statuesque blonde is one of a select group of five directors-general, out of 37 in all, who report directly to Juncker. In person, Mettler retains the aura of a newcomer to the Commission who came over from the Lisbon Council, a think tank she co-founded in 2003 with her husband Paul Hofheinz, a Texas-born journalist.
At the Lisbon Council, Mettler gained a reputation for needling the Commission. She regularly knocked on Selmayr’s door — he was then working for combative former commissioner Viviane Reding — to criticize the institution for being outdated and old-fashioned, according to a Commission source.
Mettler, who is 44, was born in Malmö to a Swedish mother and a German father. She speaks English with a slight American twang, an echo of her time at the University of New Mexico, where she got a master’s degree in Latin American studies. She worked for a few years on Capitol Hill in Washington, before moving back to Europe — first to Bonn and then to the World Economic Forum in Geneva where she was the director for Europe.
After three years at the WEF, Mettler came to Brussels to start the Lisbon Council.
Her proposal for a reorganized Commission caught Juncker’s eye, according to an aide.
In her final report for the think tank last year, Mettler proposed an organizational structure similar to the one Juncker put in place when he took office: with powerful vice presidents overseeing the work of “ordinary” commissioners.
Aides say that Mettler ticked several boxes of what Juncker wanted in a top policy adviser. She is a committed European who speaks five languages. Her appointment helped Juncker meet his promise to put more women in senior roles. She is also not afraid of being confrontational.
“[Juncker] said, ‘You’re telling me things that I don’t like to hear, which is good,’” said a Commission source, adding that Juncker urged Mettler to present “disruptive ideas.”
Who’s afraid of Ann Mettler?
The Commission’s in-house think tank dates back to the late 1980s, when Jacques Delors was president. According to an aide, Juncker sought Delors’ advice before appointing Mettler.
The Bureau of European Policy Advisors, as it was known until Juncker came along, was supposed to cultivate and push ideas. But by the end of the previous president José Manuel Barroso’s second term, BEPA had little influence, with a staff that was overwhelmingly Portuguese, the same nationality as Barroso. One senior official described it as “chaotic and amateurish.”
“The old BEPA was unofficially the old bureau of ‘Pals of Barroso’,” a Commission source said.
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Juncker’s decision to revamp the think tank generated a lot of excitement in the Commission. According to one official familiar with the process, there were thousands of applications for positions in it.
Among those shortlisted for the top job were Andrew Duff, former MEP and president of the Union of European Federalists; and two former commissioners: Meglena Kuneva and László Andor.
By taking the unusual step of going outside national government or EU institutions, Juncker turned heads inside the Commission, many with resentment and apprehension over the arrival of an outspoken and independent woman with some bold ideas.
In her first months, Mettler focused on reorganizing her new shop. At Juncker’s insistence, Mettler asked every member of her staff to reapply for their job. Only BEPA deputy head Maria Benitez Salas survived the purge, because Mettler saw her as useful in navigating the Commission’s complex administration.
Among the new hires were a chief economist at credit ratings agency Moody’s, an economic advisor to the president of Ireland, and analysts from other think tanks. She also took on senior Commission staffers leaving other departments: Robert Madelin, Claus Sorensen and Karl Falkenberg, all big names in the Commission, now work as EPSC policy advisers.
Policy impacts
After all the fanfare and extensive house cleaning, Mettler was expected to have a heavy hand in shaping Commission policy. She has, however, faced barriers to success. Some of these are seen as of her own making, especially a pledge to stay in the post only for the duration of the Juncker Commission.
“She’s like a Washington player in that she has to be hyperactive because she’s giving herself limited time, but she might find that it’s quite difficult,” one senior official said.
There are also grumblings among the old Commission guard about the difficulty of getting meetings with the EPSC boss, while some say that her preference for outsiders like her for top staff jobs isn’t the best way to quickly put her stamp on the place.
“You can’t expect to exercise influence when you bring in all new people,” an EU official said. “You have to work with and against the grain. She should have gone on a shopping expedition to get the best and brightest already in the Commission as well as some new blood.”
Besides her deputy Salas, a BEPA layover, Mettler’s managed to poach some talent from within the Berlaymont like Georg Riekeles, a member of former Commissioner Michel Barnier’s cabinet and Vincent Stuer, a speechwriter for Barroso.
“I’ve seen her play across the political spectrum from the outside — but can you continue to do that when you’re from the outside?” asked Nick Davis, a former colleague at the World Economic Forum.
The most visible aspect of her work is the EPSC’s policy briefs, which this Commission has made public for the first time. Juncker gives Mettler a different theme to work on every two to three weeks. Her team has produced five papers on issues such as legal migration, eurozone reform, tax policy coordination and most recently a reassessment of the Europe 2020 strategy for achieving “smart, sustainable and inclusive” economic growth.
None of the policy prescriptions offered by the EPSC have been embraced visibly by the Juncker Commission. Officials say some of the think tank’s thinking made it into a report published in June by the so-called “five presidents” — Juncker, Donald Tusk, Martin Schulz, Jeroen Dijsselbloem and Mario Draghi — on strengthening the EU’s economic union.
As with any advisor to a senior politician, Mettler’s work is hidden from most eyes. The Commission doesn’t promote EPSC publications beyond posting them on a website and emailing them internally. One aide in the finance department admitted that Mettler’s economic and monetary union paper, sent out in June, was still sitting in his inbox, unread.
The EPSC will launch its Twitter account in the next few weeks, which will lead a few more eyeballs to the papers.
Other technocrats say it’s not realistic to expect Mettler to have much of an effect when most decisions are taken in national capitals. “No one listens to a think tank in the Commission,” said an economic analyst at the Commission who was not authorized to speak to the media and asked for anonymity. “There’s too much red tape. The member states dictate everything, it’s too political.”
Since think-tanking is not policy making, it’s difficult to judge impact. Mettler said she was proud to see members of the Bundestag and German press reference her “Defence Strategic Note” — proof that her papers were getting noticed in the capitals.
Mettler admitted that she doesn’t expect her papers to cause a revolution. She wasn’t able to point to any policy impact, and said that isn’t her goal or measure of success. In the interview, she said that she aimed for realistic proposals that will lead to the evolution of policy. Her goal has been to inspire a staid institution of technocrats to be more forward looking.
“I don’t think you can expect EPSC to write a paper that will become legislation,” she said. “I think much of the impact will be seen over time. I think what we bring to the table is also a new way of working, a new way of bringing people together. It’s not just written outputs, it’s how you do things.”
Others say the EPSC offers a window into Juncker’s world. If Mettler is writing it, they say, Juncker must be thinking it. And to her defenders, if he’s not acting on it, the fault lies with him, not her.