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Differentiated Integration in the Eu DIFFERENTIATED INTEGRATION IN THE EU FROM THE INSIDE LOOKING OUT EDITED BY STEVEN BLOCKMANS CONTRIBUTORS STEVEN BLOCKMANS VÍT BENEŠ MATS BRAUN RICHARD CORBETT ELAINE FAHEY ESTER HERLIN-KARNELL THEODORE KONSTADINIDES ADAM ŁAZOWSKI CLAUDIO MATERA JUAN SANTOS VARA CSABA TÖRŐ CENTRE FOR EUROPEAN POLICY STUDIES (CEPS) BRUSSELS The Centre for European Policy Studies (CEPS) is an independent policy research institute in Brussels. Its mission is to produce sound policy research leading to constructive solutions to the challenges facing Europe. The views expressed in this book are entirely those of the authors and should not be attributed to CEPS, the European Union or to any other institution with which they are associated. This book is a compilation of papers presented by the authors at an EPIN seminar on “The External Dimension of a Multi-Speed, Multi-Tier European Union” in Brussels on 6 May 2013. The European Policy Institutes Network (EPIN) is a network of 37 think tanks from 26 countries, led by CEPS. EPIN aims to contribute to the debate on the future of Europe through expert analysis and commentary and benefits from the support of the EU under the European Commission’s ‘Europe for Citizens’ Programme. In the framework of this particular research project, EPIN cooperated with the Amsterdam Centre for European Law and Governance (ACELG), the Centre for the Law of EU External Relations (CLEER) and the Faculty of Law of the University of Copenhagen. Cover image: © Jonáš Vacek, 2014 ISBN 978-94-6138-373-0 © Copyright 2014, Centre for European Policy Studies and the authors. All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means – electronic, mechanical, photocopying, recording or otherwise – without the prior permission of the Centre for European Policy Studies. Centre for European Policy Studies Place du Congrès 1, B-1000 Brussels Tel: (32.2) 229.39.11 Fax: (32.2) 219.41.51 E-mail: [email protected] Internet: www.ceps.eu TABLE OF CONTENTS (OVERVIEW) 1. Introduction Steven Blockmans .............................................................................................................1 2. Two-tier Europe - Really? Richard Corbett ................................................................................................................8 3. An ever-closer eurozone and its consequences for differentiated integration in Europe Vít Beneš and Mats Braun .............................................................................................. 12 4. EU constitutional principles as housekeeping rules in EU external variable geometry Ester Herlin-Karnell and Theodore Konstadinides ............................................................ 26 5. Flexibility and homogeneity: Two uneasy bedfellows Adam Łazowski .............................................................................................................. 37 6. Differentiation in CFSP Steven Blockmans ........................................................................................................... 46 7. Accommodating differences within the CSDP: Leeway in the treaty framework? Csaba Törő ..................................................................................................................... 57 8. Much ado about opt-outs? The impact of variable geometry in the AFSJ on the EU as a Global Security Actor Claudio Matera............................................................................................................... 75 9. Transatlantic relations and the operation of AFSJ flexibility Juan Santos Vara and Elaine Fahey ............................................................................... 103 List of Abbreviations......................................................................................................... 126 TABLE OF CONTENTS (IN DETAIL) 1. Introduction Steven Blockmans ..................................................................................................................... 1 A kaleidoscopic picture ......................................................................................................... 1 Aims and structure of the study .......................................................................................... 2 Semantic clarifications ........................................................................................................... 5 2. Two-tier Europe - Really? Richard Corbett ......................................................................................................................... 8 3. An ever-closer eurozone and its consequences for differentiated integration in Europe Vít Beneš and Mats Braun ..................................................................................................... 12 3.1 A federal eurozone in an intergovernmental EU ..................................................... 13 3.1.1 Motivation: budgetary union and democratic approval ............................... 13 3.1.2 Institutional design ............................................................................................. 14 3.2 An intergovernmental eurozone in an intergovernmental EU .............................. 16 3.2.1 Motivation: functionalist crisis-solving and intergovernmentalism ........... 16 3.2.2 Institutional aspects ............................................................................................ 18 3.3 A consolidated EU ........................................................................................................ 21 3.3.1 Motivation: overcoming the division of Europe ............................................ 21 3.3.2 Institutional aspects ............................................................................................ 22 3.4 Conclusion ..................................................................................................................... 23 4. EU constitutional principles as housekeeping rules in EU external variable geometry Ester Herlin-Karnell and Theodore Konstadinides ................................................................. 26 4.1 Consistency .................................................................................................................... 27 4.2 Sincere cooperation/loyalty ........................................................................................ 30 4.3 Fragments of conferral in a differentiated landscape .............................................. 33 4.4 Conclusion ..................................................................................................................... 35 5. Flexibility and homogeneity: two uneasy bedfellows Adam Łazowski ....................................................................................................................... 37 5.1 Introduction ................................................................................................................... 37 5.2 The external face of flexibility ..................................................................................... 37 5.3 How to marry flexibility with homogeneity? ........................................................... 39 5.3.1 Flexibility vs. homogeneity: a law book perspective ..................................... 40 5.3.2 Flexibility vs. homogeneity: a court room perspective ................................. 42 5.4 Conclusions ................................................................................................................... 45 6. Differentiation in CFSP Steven Blockmans ................................................................................................................... 46 6.1 Introduction ................................................................................................................... 46 6.2 Treaty departures from unanimity decision-making .............................................. 47 6.2.1 Introduction ......................................................................................................... 47 6.2.2 Constructive abstention ..................................................................................... 49 6.2.3 Qualified Majority Voting ................................................................................. 50 6.3 Extension of enhanced cooperation to CFSP ............................................................ 52 6.4 Coalitions of member states ........................................................................................ 53 6.5 Putting the C back into the CFSP ............................................................................... 55 7. Accommodating differences within the CSDP: Leeway in the treaty framework? Csaba Törő .............................................................................................................................. 57 7.1 Preliminary remarks ..................................................................................................... 57 7.2 Accommodating differences in the course of CSDP decision-making ................. 58 7.2.1 CSDP firmly within the realm of unanimity ................................................... 58 7.2.2 Narrow exception to the rule of unanimity: instances of QMV in CSDP ... 59 7.2.3 Accommodating differences in CSDP within the limits of unanimity: flexibility through constructive abstention ..................................................... 60 7.3 Room for the accommodation of differences in the implementation of CSDP decisions ........................................................................................................................
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