that, to please the British, EU defence primacy; NATO’s should not threaten and, to please the French, the Union for should be able to act autonomously modest military missions. the past has stuckThat compromise for the and has been accepted by five years of the EU.TheGermans and the rest new institutions – suchUnion has built as committee,the political and security the military committee and the military staff. It has also worked out a set of agree- ments with NATO, the EU can whereby assets for and other planners use NATO’s ‘Berlin-plus’ – those which the operations support. Union undertakes with NATO the EU suchThe first mission involved small peace-keeping taking over NATO’s 2003. April in Macedonia in operation months later,A few the Union embarked autonomous mission when on its first led a small stabilising force the French Congo. to Bunia in The US never liked the idea of autonomous operations, that fearing lead to the EU they could in the long run does. NATO duplicating what But the accepted Blair’s grudgingly Americans that the UK and the many assurances in the governments Atlanticist other came that NATO Union would ensure to no harm. eports r hermore, to preparing the Union was rt ench President Jacques Chirac to Chirac ench Jacques President un its own military operations originated un its own military operations un its first large-scale peace-keeping large-scale un its first 2003 was a year of sharply contrast- of sharply a year 2003 was defence. European ing fortunes for split the EU down the war The Iraq the idea middle and almost discredited should develop that the Europeans capability.their own defence By the end of the year, however, of a revival ‘big three’ among the co-operation – Britain, – had put Germany and France back on the agenda. defence European Fu r mission, in Bosnia. The idea that the EU should be able to r in the Balkan conflicts of the 1990s. and Bosnia, Croatia in the wars During suchdictators as Slobodan Milosevic the Union said took little notice of what it could because they knew that while pass resolutions, it could not deploy battalions. was Kosovo And then when of exploding,on the brink the EU little in the diplomacy that counted for Serbs and Kosovars. to reconcile tried encouraged Balkan failure The Union’s Blair and Tony Minister Prime British Fr at their launch the idea of EU defence summit in St Malo in December 1998. deal was The essence of the Blair/Chirac Charles Grant

ance and Germany ance and ho believe that the ood news for those ood news for The deal struck than institutions’ on military capabilities g w more EU should focus European defence is defence European Fr of on the future between Britain, ‘ While attention focused on the collapse of the on the collapse focused While attention EU constitution at lasttalks on a new December’s summit, creating taken towards step was a crucial policy. a common defence

ON DEFENCE ON DEFENCE BIG THREE JOIN FORCES JOIN THREE BIG FEATURE

e!sharp | march 2004 | 40 Photograph: Reuters On target: renewed co-operation between France, Germany and Britain paved the way for a ground-breaking deal

One rationale for giving the EU a role and Luxembourg, who had led opposi- an attempt to build up a European in defence was the hope that it would tion to the war. alternative to NATO, with a distinctly prove more effective than NATO at anti-American flavour. persuading the member states to They approved a Belgian idea for a enhance their military capabilities. Here separate EU military headquarters in the The concept of an EU staff of opera- the record has been mixed. Brussels suburb of Tervuren, arguing tional planners is not, in itself, a big that if the Union was going to conduct deal. It is probably desirable, if in the Some countries, such as Germany, have autonomous operations, it would need long term the Union is to engage in cut defence budgets. But others, such its own operational planners. medium-sized autonomous operations. as the UK and France, have increased But given the context in which the spending, while several have invested in The counter-argument, put by the UK Tervuren initiative was launched – with new equipment.Thus six EU member and some of those governments excluded Europe split into two hostile camps – states are building a new transport plane, from the summit, was that the EU the timing was extraordinarily foolish. the A400M. Spain, Italy and France have could use a national headquarters, duly either introduced all-professional armies, modified to reflect the nationalities of This scheme jiggled the knife in the or begun the process. And in 2003, Britain those taking part in the mission.That was wound between New Europe and Old and France came up with the idea of a what happened for the mission to Bunia, Europe. It made everyone mistrust every- new EU agency with the job of pushing when a French HQ was in charge. one else’s motives. And, worst of all, it the member states to improve their caused delight among the Pentagon capabilities.The Union will establish this Whatever such technical arguments, hawks.Their ambition is to maintain the body in 2004. the Belgian proposal, strongly backed by wound between New and Old Europe, to Chirac and German Chancellor Gerhard practice a policy of divide and rule, and to e ! Despite this progress, the Iraq war – Schröder – against the advice of their prevent the Union emerging as a united sharp and its consequences – very nearly foreign and defence ministries – was of and credible actor in foreign and defence | destroyed the idea of European defence. huge political importance.The Tervuren policy.The April 29 summit helped to fulfil march 2004 One consequence was the Brussels initiative had an obvious message for all those Pentagon aspirations. summit on April 29, bringing together American, British, Spanish, Italian and

the leaders of Germany, France, Belgium east European eyes. It appeared to be In the autumn of 2003, however, | 41 now that the EU has agreed to set now that the EU has agreed r, the Brussels EU summit in December, the Brussels hich no treaty change is required. hich change no treaty At signed up to this other governments deal.Theto reach an failure summit’s does not on the constitution agreement on planning, the agreement affect for w However, articles the treaty on defence until suchas time cannot come into effect by and ratified the constitution is adopted all the member states. certain that will from whether It is far happen. However, if someof the version concluded,constitution is finally it will of these two wording contain the agreed articles,defence since it has the backing of all 25 governments. The deal struck between Britain, France of European on the future Germany and those who news for is good defence more believe that the Union should focus on military capabilities than institutions. Fo up its own military planning cell – a development which will make very little world,real in the difference despite the surrounding negotiations highly-charged matters. it – it can move ahead with what boosting Europe’s And that is not only military capabilities, to but also preparing peace-keeping mission take over NATO’s in Bosnia. never very enthusiastic about EU defence. enthusiastic very never tinational headquarters, and that could develop l re ance and Germany would probably go ahead – with go probably would Germany ance and the EU planning unit. He pointed out that if Britain planning, in operational Union role any blocked Fr – and set up some of their friends sorta few of mu interests.American which harmed in ways But if the part EU planning arrangements, are of the new British direction. can steer them in a NATO-friendly they needed reassurance, countries European Many too: when the smaller ones tend to become worried concoct a deal.Thethe big three and east central Europeans, in particular, who of NATO fans great are we cannot credentials Atlanticist Blair – whose But when need not worry, be doubted – tells them that they him. inclined to believe are they that the criteria for membership of membership for that the criteria ater down this article, which now oundation of EU collective defence. Blair centre stage takes ask its operational planners to play a role to play planners ask its operational an autonomous mission. in conducting up with need to be beefed They would able they were before additional resources on their own. a mission to run of this deal concern The other two prongs constitution.The European the draft text which came out of the convention contained two articles upset the which Americans, other and many the British EU governments. of a group One of these would allow ‘structured a member states to establish co-operation’ – meaning a in defence the most ambitious,club for perhaps initiative. Tervuren along the lines of the to amend this agreed The big three article to so only that it could apply on military capabilities and co-operation so this club would not be too stringent. Article 5 like The second article – rather commit – would treaty of the NATO each other from member states to defend attack.The that this worried Americans might turn the Union into a collective would rival which organisation defence to agreed Germany NATO. and France w being the to NATO includes references f defence ant-garde av Blair’s role in the revival of European defence defence of European in the revival role Blair’s ing the other Whitehall departments to follow. ing the other ny ashington that EU defence will not damage NATO. will not damage ashington that EU defence rc Blair has also played an essential role in reassuring an essential role Blair has also played W Indeed, summit, the Brussels just before he persuaded should accept Bush that his administration George co-operation has been crucial. co-operation and in the Ministry of Defence senior figures Many to had doubts about his desire Office the Foreign Germans and the with the French compromise in the autumn of 2003.Theyon planning staffs concerns that a small planning American shared of something which would unit could be the germ be harmful to NATO. has set policy on this subject, Street But 10 Downing fo To the EU will deploy a small group of a small group the EU will deploy t, eign and defence policies cannot be eign and defence accepting the principle that the EU may accepting the principle r ance and Germany.ance and He too compromised rs or the sake of an agreement with the or the sake of an agreement enewed co-operation among the big among enewed co-operation elationship between the Union and r on divisions persistent – despite three in ambitions EU’s the – revived Iraq defence. abandoned and Schröder Chirac an for their plans When the Union conducts an auto- nomous mission, a national headquarters in charge. be will normally However, if is unanimous consent,there the EU may The final deal had three principal elements. principal The final deal had three Fi to SHAPE, planners operational NATO’s planning headquarters near Mons.This a smooth will work on ensuring group r ‘Berlin-plus’ on NATO missions.There will planners also of operational be a new unit military staff,in the Union’s to help with the planning of EU military missions. need to do its own operational planning.need to do its own operational British, a plan for original they diluted their an military headquarters could run which EU operation. Meanwhile, Blair decided in could not fulfil its objectives that Britain with bridges without rebuilding Europe Fr by F grouping, that European believing fo without the UK.built

e!sharp | march 2004 | 42