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European Security and Defence Policy :jgdeZVc Jc^dc >chi^ijiZ[dg HZXjg^inHijY^Zh :jgdeZVcHZXjg^in VcY9Z[ZcXZEda^Xn I=:;>GHI&%N:6GH&..."'%%. :Y^iZYWn <^dkVcc^<gZk^! 9Vb^Zc=ZaanVcY 9Vc^Za@Zd]VcZ 8dcig^Wjidgh HVW^cZ;^hX]Zg :kV<gdhh 9Vc^Za@dgh`^ B^X]VZaBZga^c\Zc :hgV7jaji 7ZcZY^`i;gVc`Z 9Vb^Zc=Zaan MnbZcV@jgdlh`V Aj^hEZgVa 8Vin8abZci G^X]VgY<dlVc >hVWZaaZ>dVcc^YZh 9dkAncX] @^ghiZc:#HX]jaoZ <Zdg\Z9jgV <^dkVcc^<gZk^ 9Vc^Za@Zd]VcZ 8aVjY^VBV_dg I]^ZggnK^gXdjadc *O+BOVBSZUIF*OTUJUVUFGPS4FDVSJUZ4UVEJFT &6*44 CFDBNFBOBVUPOPNPVT 1BSJTCBTFEBHFODZPGUIF&VSPQFBO6OJPO'PMMPXJOHBO&6$PVODJM+PJOU"DUJPOPG +VMZ NPEJmFECZUIF+PJOU"DUJPOPG%FDFNCFS JUJTOPXBOJOUFHSBMQBSU PGUIFOFXTUSVDUVSFTUIBUXJMMTVQQPSUUIFGVSUIFSEFWFMPQNFOUPGUIF$'41&4%15IF *OTUJUVUFT DPSF NJTTJPO JT UP QSPWJEF BOBMZTFT BOE SFDPNNFOEBUJPOT UIBU DBO CF PG VTFBOESFMFWBODFUPUIFGPSNVMBUJPOPGUIF&VSPQFBOTFDVSJUZBOEEFGFODFQPMJDZ*O DBSSZJOHPVUUIBUNJTTJPO JUBMTPBDUTBTBOJOUFSGBDFCFUXFFO&VSPQFBOFYQFSUTBOE EFDJTJPONBLFSTBUBMMMFWFMT 5IF&VSPQFBO6OJPO*OTUJUVUFGPS4FDVSJUZ4UVEJFT1BSJT %JSFDUPSÕMWBSPEF7BTDPODFMPT Ü&6*OTUJUVUFGPS4FDVSJUZ4UVEJFT"MMSJHIUTSFTFSWFE/PQBSUPGUIJTQVCMJDBUJPO NBZCFSFQSPEVDFE TUPSFEJOBSFUSJFWBMTZTUFNPSUSBOTNJUUFEJOBOZGPSNPSCZBOZ NFBOT FMFDUSPOJD NFDIBOJDBM QIPUPDPQZJOH SFDPSEJOHPSPUIFSXJTFXJUIPVUUIFQSJPS QFSNJTTJPOPGUIF&6*OTUJUVUFGPS4FDVSJUZ4UVEJFT 1VCMJTIFE CZ UIF &6 *OTUJUVUF GPS 4FDVSJUZ 4UVEJFT BOE QSJOUFE JO $POE±TVS/PJSFBV 'SBODF CZ$PSMFU*NQSJNFVS (SBQIJDEFTJHOCZ.FUSPQPMJT -JTCPB :jgdeZVcHZXjg^inVcY9Z[ZcXZEda^Xn/ i]ZÒghiiZcnZVgh&..."'%%. :hgV7jaji!8Vin8abZci!<Zdg\Z9jgV!HVW^cZ;^hX]Zg!7ZcZY^`i ;gVc`Z!G^X]VgY<dlVc!<^dkVcc^<gZk^!:kV<gdhh!9Vb^Zc=Zaan! >hVWZaaZ>dVcc^YZh!9Vc^Za@Zd]VcZ!9Vc^Za@dgh`^!MnbZcV@jgdlh`V! 9dkAncX]!8aVjY^VBV_dg!B^X]VZaBZga^c\Zc!Aj^hEZgVa!@^ghiZc:# HX]jaoZ!I]^ZggnK^gXdjadc EgZ[VXZWnÛakVgdYZKVhXdcXZadh :Y^iZYWn<^dkVcc^<gZk^!9Vb^Zc=ZaanVcY9Vc^Za@Zd]VcZ Institute for Security Studies European Union 43 avenue du Président Wilson 75775 Paris cedex 16 tel.: +33 (0)1 56 89 19 30 fax: +33 (0)1 56 89 19 31 e-mail: [email protected] www.iss.europa.eu ISBN 978-92-9198-157-1 Director: Álvaro de Vasconcelos QN-80-09-910-EN-C 6X`cdlaZY\ZbZcih I]ZZY^idghl^h]h^cXZgZanidi]Vc`VcjbWZgd[eZdeaZ[dgi]Z^ghjeedgiYjg^c\ i]^hegd_ZXi#;^ghian!lZl^h]idi]Vc`i]ZXdcig^Wjidghidi]^hWdd`!l^i]djii]Z^g XddeZgVi^dc^ildjaYcdi]VkZWZZcedhh^WaZ#LZVahdl^h]idi]Vc`i]ZcjbZg" djh:Jd[ÒX^Vah!cVi^dcVaY^eadbVihVcYdeZgVi^dcheZghdccZal]d\VkZjei]Z^g kVajVWaZi^bZ[dg^ciZgk^Zlhdgid\^kZXdbbZcihdcYgV[ih!VcYl]dldjaYegZ[Zg idgZbV^cVcdcnbdjh#BVcni]Vc`hVahdidÛakVgdYZKVhXdcXZadh!i]Z9^gZXidg d[i]Z:J>HH![dg]^hhjeedgi!VcYidkVg^djh:J>HHXdaaZV\jZhÄi]ZhZ^cXajYZ <ZVg^Y 8gdc^c [dg ]^h aVc\jV\Z ZY^i^c\! =Vccd GVcX` [dg \gVe]^X YZh^\c! VcY BVg^Z6cidc^c^"6akVgZo[dggZhZVgX]]Zae#;^cVaan![dgi]Z^gZmiZch^kZ]Zael^i]gZ" hZVgX]!lZl^h]idi]Vc`8]VgadiiZ7adbbZhi^_c!Egd_ZXi6hh^hiVci!VcYi]Z[daadl" ^c\^ciZgchVii]Z:J>HH/Bdc^`V7godh`V!@Vig^c7jX]bVcc!>\dg<VgX^V"IVe^V! @VheZg <^bh^c\! Eda Bdg^aaVh! ;adg^cV"AVjgV CZXjaV^VcY BVgiV OV_VXo`dlh`V# 6cn[VXijVaZggdghVgZ!d[XdjghZ!djggZhedch^W^a^in# EVg^h!DXidWZg'%%. 8dciZcih EgZ[VXZ 9 Álvaro de Vasconcelos >cigdYjXi^dc 13 Giovanni Grevi, Damien Helly and Daniel Keohane 1"350/& 17 &#:H9E^chi^iji^dch 19 Giovanni Grevi ;gVb^c\^chi^iji^dcVagZ[dgb 21 I]Z^chi^iji^dcVaVgX]^iZXijgZ 23 I]ZeaVcc^c\egdXZhh 53 I]ZA^hWdcIgZVin/Xdci^cj^inVcY^ccdkVi^dc 59 '#:H9EgZhdjgXZh 69 Giovanni Grevi and Daniel Keohane B^a^iVgngZhdjgXZh[dg:H9E 71 8^k^a^VcgZhdjgXZh[dg:H9E 90 (#:H9EeVgicZgh]^eh 115 :H9EVcYi]ZJc^iZYCVi^dch 117 Richard Gowan :H9EVcYC6ID 127 Daniel Keohane :H9EVcYi]ZDH8: 139 Dov Lynch :H9EVcYi]Z6[g^XVcJc^dc 147 Damien Helly 1"35580 159 )#:JEB7dhc^VVcY=ZgoZ\dk^cV 161 Michael Merlingen *#DeZgVi^dc8DC8DG9>6[NGDB 173 Eva Gross +#DeZgVi^dc6GI:B>HG98dc\d 181 Damien Helly ,#:JEDAEGDM>B6$:JE6I[NGDB 187 Isabelle Ioannides -#:J?JHII=:B>H<Zdg\^V 201 Xymena Kurowska .#:J;DG6AI=:67dhc^VVcY=ZgoZ\dk^cV 211 Daniel Keohane &%#:JEDA@^ch]VhVVcY:JEDAG98dc\d 221 Thierry Vircoulon &&#:J?JHIA:M>gVf 231 Daniel Korski &'#:JH:8G98dc\d 243 Caty Clément &(#Hjeedgiid6B>HVcY6B>HDBHjYVcVcYHdbVa^V 255 Benedikt Franke &)#6BB6XZ]!>cYdcZh^V 265 Kirsten E. Schulze &*#:J76BBdaYdkV"J`gV^cZ 275 George Dura &+#:JEDA8DEEHEVaZhi^c^VciZgg^idg^Zh 287 Esra Bulut &,#:J76BGV[V]EVaZhi^c^VciZgg^idg^Zh 299 Esra Bulut + &-#:J;DGG98dc\d 311 Claudia Major &.#:JEDA6[\]Vc^hiVc 325 Luis Peral '%#:J;DGIX]VY$G86 339 Damien Helly '&#:JA:M@dhdkd 353 Giovanni Grevi ''#:JHHG<j^cZV"7^hhVj 369 Damien Helly '(#:JBB<Zdg\^V 379 Sabine Fischer ')#:JC6K;DGHdbVa^V 391 Damien Helly 8dcXajh^dc/i]ZcZmihiZeh[dg:H9E 403 Giovanni Grevi, Damien Helly and Daniel Keohane 6ccZmZh 413 BZbWZgHiViZhÉXdcig^Wji^dchidb^a^iVgn:H9EdeZgVi^dch 414 BZbWZgHiViZhÉXdcig^Wji^dchiddc\d^c\X^k^a^Vc:H9EdeZgVi^dch 415 :H9EdeZgVi^dchViV\aVcXZ 416 6Wdjii]ZVji]dgh 417 7^Wa^d\gVe]n 421 6WWgZk^Vi^dch 443 , - EgZ[VXZ :H9E/6gZVa^inX]ZX` 2009 was the ‘year of ESDP’ at the EUISS with the release of two publications marking the first ten years of the European Security and Defence Policy. The EUISS set out to produce two books: one – this volume – consists of a retrospec- tive examination of the last ten years, including a detailed account and analysis of each individual ESDP mission, while the other, What ambitions for European defence in 2020?, seeks to define what should be the ambition for European de- fence in the coming decade. European Security and Defence Policy: the first ten years (1999-2009), which has in- volved the in-house research team almost in its entirety and drawn in further contributions, has brought to light, with the methodological persistence and thoroughness of the archaeologist, working layer by layer, stone by stone, all past and current ESDP missions’ achievements and shortcomings. It examines in depth virtually all issues relevant to ESDP, its institutions and their work- ings, the available resources and their use, as well as the way it relates to other international organisations, mainly the UN, NATO, the OSCE and the Afri- can Union. With this multi-authored volume, the EUISS is now able to offer a manual of ESDP, that will hopefully serve as a reference book for the use of all those interested in the development of European security and defence policy, in both its civil and military aspects. What is striking is not so much that the main policy conclusions drawn from both exercises should practically be the same. What is rather more striking is that by looking closely at twenty-three EU missions one by one, from the first mission in Bosnia to the naval operation off the coast of Somalia, a larger pic- ture emerges of the future contours and development of ESDP. ESDP is al- ready maturing, and indeed in different ESDP missions elements of its future shape can already be inferred. Building on the last ten years’ best practice, as the present study suggests, will allow for substantially enhanced effectiveness . :jgdeZVcHZXjg^inVcY9Z[ZcXZEda^Xn/i]Z[^ghiiZcnZVgh&..."'%%. in the ten years to come, and make it easier to reverse the three major deficits both EUISS volumes identify in parallel: the political deficit or the Common Foreign and Security Policy (CFSP) gap, insufficient coherence and inadequate capabilities. Examining the EU monitoring mission in Georgia, Sabine Fischer demonstrates that an enormous gain of efficiency is achieved by integrating a mission into a well- defined strategy under ‘strong leadership’ unanimously backed by Member States. EU action to prevent a dangerous escalation of war on its doorstep was decisive also because it was swift, and part of the reason for this timeliness relates to unity of pur- pose. The need to bridge the political deficit is a main recommendation for the next ten years. The EU mission in Georgia proves that it is quite possible to overcome the political gap that has weakened the impact of other EU missions. Looking at the current mission in Kosovo, Giovanni Grevi concludes that more thinking needs to be devoted ‘to the connection between foreign policy and ESDP’, and expresses the hope the Lisbon Treaty will indeed help bridge the gap. Advantages in terms of coherence that can be gained by unifying EU external ac- tion emerge just as clearly from the detailed analysis of the various missions in the Balkans, where many European Commission projects are also being implemented alongside ESDP operations. As Eva Gross states, highlighting the EU’s excellent record as a crisis management actor in the former Yugoslav Republic of Macedonia (FYROM), the ‘linear application and devolution from a military to a civilian ESDP mission followed by Community programmes’ was crucial to the success of the EU’s intervention there. This is true even though, as has often been observed, strong inter-pillar coordination has in many cases been lacking, including in the Balkans. The double-hatted EU representation to the African Union in Addis Ababa is a fore- taste of things to come. Damien Helly points out that it ‘is seen as a very successful experience so far’, and one that must certainly be carefully studied in the process of establishing the European External Action Service. But the need for coherence does not merely refer to the ability to give a common thrust to EU diplomacy, but perhaps more decisively to the necessity to ensure that national policies are part of it as well. Examples of the failures of coordination between EU Members States both among themselves and within the Union are catalogued far too frequently in these pages, Afghanistan being a case in point. The Union needs to overcome the coher- ence deficit without weakening EU legitimacy for the sake of effectiveness. &% EgZ[VXZ The benefits of pooling are equally obvious when it comes to the universally recog- nised capability gap, and bridging this is certainly a major challenge for the future.
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