Introduction

Stiftung Wissenschaft und Politik German Institute for International and Security Affairs Comments

The Networking of European Foreign Policy: From Cacophony to Choir? WP Annegret Bendiek S

The European Commission has created a new foreign affairs project team led by Federica Mogherini, the High Representative of the European Union for Foreign Affairs and Security Policy. This institutional reform represents yet another attempt to over- come the incoherence between the CFSP and the European Union’s external relations. The expectations of a more networked foreign policy will only be fulfillable if the EEAS takes over inter-departmental strategic planning and Germany plays a leading role in flexibilising the CFSP/CSDP.

In early July 2014 the European Parliament The Goal: Coherence chose Martin Schulz as its President, and That job will be anything but easy. Academ- a fortnight later confirmed Jean-Claude ics and politicians have been pointing out Juncker as President of the European Com- for years that European external policy mission on the basis of his “Political Guide- suffers from incoherence of substance and lines” by the large majority of 422 votes. lack of internal coordination. The member- Soon thereafter former Polish prime minis- states often pursue diverging strategic ter Donald Tusk was appointed President of interests and find themselves at odds over the European Council for December 2014 fundamental questions, such as the impor- to May 2017. Finally, in late October, Parlia- tance of the transatlantic partnership, the ment and Council gave their approval to proper line on Russia or policy towards the new Commission, which began work China. There are several reasons for this on 1 November 2014. This changing of the lack of congruity in foreign policy. Strategic guard at the European Union will set the dissonance between the member-states is course for its future foreign policy. Schulz, one, largely stemming from their different Juncker, Tusk and the new High Represen- foreign policy interests and traditions. An- tative of the European Union for Foreign other is the institutional division of foreign Affairs and Security Policy, Federica Moghe- policy between different Directorates- rini, must now turn to the task getting the General and their inadequate coordination. European Union to speak with “one voice” Trade communicates poorly with neigh- in its external representation. bourhood affairs; migration policy is devel-

Dr. Annegret Bendiek is a Senior Associate of SWP’s EU/Europe Division SWP Comments 48 November 2014

1 oped without reference to development; nated policy towards third countries. and security is disconnected from the Euro- A “resilient energy union” and a “forward- pean Union’s digital agenda. The Treaty of looking climate change policy” are just as Lisbon was supposed to equip the Union obvious core foreign policy issues as “a with its own legal personality in external reasonable and balanced free trade agree- affairs, but in fact the old distinction be- ment with the U.S.” In her address to the tween the Community policies of EU ex- European Parliament in early October, the ternal action and the inter-governmental High Representative also presented an CFSP/CSDP persists. So although the Com- ambitious foreign policy agenda affecting mission has assumed responsibility for various departments. She intends to reform external representation, where it is to the European Security Strategy, expand promote the “general interests of the Euro- cooperation on security and defence, pro- pean Union”, this encompasses only areas mote stability in the wider neighbourhood, outside of the CFSP and CSDP. The Commis- deepen transatlantic cooperation, and ad- sion has powers relating to trade policy, vance strategic regionalism above all with cooperation with and restrictive measures South America, but also with Asia. Further, against third countries, humanitarian aid, she intends in particular to expand human international agreements and external rights cooperation with multilateral organi- relations – but not for external security or sations (United Nations, NATO, Council of fundamental strategic questions. So it will Europe, OSCE, but also Arab League, Union not be easy for the new team to construc- for the Mediterranean and African Union). tively tackle within the EU apparatus. In- Finally, she points to the UN’s post-2015 stead it must be feared that the High Repre- development process, where the European sentative and the President of the European Union is expected to decisively influence Council will continue to jostle over exter- the agenda. Sparring over powers between nal representation. Moreover, the Treaty of the High Representative and the individual Lisbon requires international treaties to be Commissioners and member-states is in- ratified by a European Parliament that has evitable. A close working relationship be- become an increasingly assertive foreign tween the vice-presidents will be crucial for policy player. Stormy debates over the Anti- Mogherini’s authority. Counterfeiting Trade Agreement (ACTA), the Transatlantic Trade and Investment Partner- ship (TTIP) and the Comprehensive Econom- A Foreign Affairs Project Team ic and Trade Agreement with Canada (CETA) It will only be possible to realise the ambi- reflect this new politicisation, alongside tious programme laid out by Juncker and relevant differences of substance. Mogherini if the structural deficits of Euro- pean foreign policy can be overcome. The new Commission took account of this by Political Programme creating a new structure with seven vice- In view of these difficulties, the political presidents including the High Representa- programme Juncker outlined in mid-July tive. The prominent position of the vice- for the next five years would appear richly presidents is reflected in the provision that conflict-laden. He names three priorities no legislative proposal may be introduced from the Political Guidelines: “a new boost to the College of Commissioners without for jobs, growth and investment”, “a con- their approval. Concretely, this means that nected digital single market” and “a resili- the “normal” Commissioners are each ent energy union with a forward-looking attached to a vice-president. In the case of climate change policy”. None of these goals the High Representative this creates a for- will be achievable without consideration of eign affairs project team whose remit com- international circumstances and a coordi- prises European neighbourhood policy and

SWP Comments 48 November 2014

2 accession talks, international cooperation Creating a foreign affairs project team is and development issues, humanitarian an important step towards an institutional aid and crisis management, as well as the strengthening of the role and powers of the sphere of international trade. The High High Representative. Juncker is seeking to Representative’s team also includes the respond to sharpening global competition Directorates-General for migration/home and put the Union in a position to speak affairs, climate action/energy, and mobility with a single voice, by strengthening hori- and transport. Within the group of Com- zontal links between different areas and missioners she will possess powers extend- overcoming the outdated separation of ing beyond the CFSP. Juncker has entrusted internal and external policy. If Mogherini Mogherini with leading and coordinating a succeeds in putting Juncker’s ideas into team entitled “Europe in the World”, to practice, there is yet hope for a European report on geopolitical developments and foreign policy capable of transforming the ensure that the foreign policy aspects of the cacophony of different spheres into a har- Commission’s work are tied more closely monious chorus. That would mean Euro- together. The intention to link the High pean foreign policy being less modelled Representative more firmly with the other on classical diplomacy. Instead the High Directorates-General is reflected in her Representative should in the first place moving into the Commission’s Berlaymont communicate internally, speaking with building and scheduling regular meetings the relevant EU foreign policy actors (in- with colleagues assigned to her. cluding the national parliaments) in order The idea of much stronger networking to develop a joint European approach. of internal and external policy agendas and departments also affects migration policy and energy and climate policy. Juncker has Conditions for Successful created a new Commissioner for Migration Networking and Home Affairs to both take action Organisational reforms will not be enough against unregulated immigration and make to solve the problems ensuing from dis- Europe more attractive for highly qualified agreements between the member-states skilled workers. Commissioner Dimitris over strategic questions. For a coherent, Avramopoulos shares responsibility for this networked EU foreign policy at least three portfolio with First Vice-President Frans conditions would have to be fulfilled: Timmermans. Both will also coordinate Firstly, the High Representative requires regularly with the High Representative in an adequate and competently staffed appa- order to implement the proposed close ratus of her own. To that end the European interconnection of internal and external External Action Service (EEAS) needs to re- policy. Combining energy policy and cli- cruit more of its expertise from academia mate protection under a single Commission- and civil society. In future it must take er, Miguel Arias Cañete, and his coordina- charge of foreign policy networking and tion with Mogherini also represents progress function as the interface between depart- in Juncker’s efforts to promote environmen- ments of relevance to foreign policy. It tal protection, preserve competitiveness and should therefore also set the agenda in the at the same time reduce Europe’s dependen- sense of preparing comprehensive foreign cy on third countries. Here the High Repre- policy strategies. Only in an outstandingly sentative will have the job of lending inter- qualified EEAS with a competent European departmental orientation to the Energy planning staff will the High Representative Union project team under Maroš Šefčovič. be able to operate effectively between Euro- In order to lessen the burden on Mogherini, pean Council and Commission. The EEAS the respective Commissioners may fulfil should consistently work to turn itself into representative duties in her place. a coordinator connecting up the different

SWP Comments 48 November 2014

3 departmental policies of the European foreign policy and a rapid deployability of Union and its member-states. Here, Moghe- CSDP instruments. Finally it must be re- rini should concentrate on enhancing the membered that only a European foreign visibility and initiative of the Service and policy will be strong enough to assert Ger- more effectively coordinating its inter- man interests vis-à-vis third parties. Thus action with non-state foreign policy actors. the planned reform of the German Foreign A crisis response centre should be set up at Ministry should strengthen both German the EEAS to unite the relevant parts of the European policy coordination and the posi- Commission and the Service, and to develop tion of the High Representative and the rules for CSDP operations. Fundamentally, EEAS. the EEAS should see itself as the driving force of digital diplomacy in Europe. Secondly, in areas that demand unanim- ity it will be important to apply flexible

© Stiftung Wissenschaft und integration processes more frequently, in Politik, 2014 other words intensified cooperation. How- All rights reserved ever coherent a foreign policy may be at the These Comments reflect administrative level, it will run into trouble solely the author’s views. without unanimity at the strategic. Juncker SWP and Mogherini therefore argue for the pos- Stiftung Wissenschaft und sibilities of “permanent structured coopera- Politik German Institute for tion” to be applied more broadly, especially International and in relation to defence procurement. First Security Affairs and foremost this means France and the Ludwigkirchplatz 3­4 United Kingdom, but Germany and Poland 10719 Berlin will also have to be involved, especially Telephone +49 30 880 07-0 Fax +49 30 880 07-100 where policy towards Belarus, Moldova, www.swp-berlin.org Ukraine and Russia is concerned. Only if [email protected] these four states can finally reach a com- ISSN 1861-1761 mon strategic positioning will Juncker and Translation by Meredith Dale Mogherini’s plans stand a realistic chance. It should be made easier to turn an initia- (English version of SWP-Aktuell 68/2014) tive started by a group of member-states into a full European initiative with the help of the EAD. Thirdly, there are particular tasks that German policy towards Europe must ad- dress. First of all, Berlin should support the Commission in bundling its powers and help the EEAS grow into a new role as the inter-departmental strategic planning agency for European foreign policy. A very much further-reaching challenge is that Germany will no longer be able to conceal its position as a civil and trade power. Given that European foreign policy relies on France, Germany, Poland and the United Kingdom all pulling together, Germany will not be able to avoid a share of responsibility for the flexible integration of European

SWP Comments 48 November 2014

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