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OMSLAG 02/06/04 10:58 Side 1 DANISH FOREIGN POLICYDANISH YEARBOOK 2004 DANISH FOREIGN POLICY YEARBOOK 2004 EDITED BY PER CARLSEN AND HANS MOURITZEN ISBN 87-7605-017-3 DANISH INSTITUTE FOR INTERNATIONAL STUDIES DANISH FOREIGN POLICY YEARBOOK 2004 Edited by Per Carlsen and Hans Mouritzen DANISH INSTITUTE FOR INTERNATIONAL STUDIES 2004 ©Copenhagen 2004 Danish Institute for Internationale Studies, DIIS Strandgade 56, DK-1401 Copenhagen, Denmark Ph: +45 32 69 87 87 Fax: +45 32 69 87 00 E-mail: [email protected] Web: www.diis.dk Cover Design: Carsten Schiøler Printed in Denmark by Gullanders Bogtryk A/S, Tarm Editors: Per Carlsen and Hans Mouritzen Assistant Editor: Line Selmer Friborg Production Supervisor: Anni Kristensen ISBN: 87-7605-017-3 Price: DKK 100.00 (VAT included) DIIS publications can be obtained from the booksellers. Wholesale for booksellers: Nordisk Bog Center A/S Bækvej 10-12, DK-4690 Haslev, Denmark Ph: +45 56 36 40 40 Fax: +45 56 36 40 39 Contents Preface • v Chapter 1: Articles • 1 The International Situation and Danish Foreign Policy 2003 • 5 Friis Arne Petersen The Atlantic Alliance at a New Crossroads: What Does It Mean for Denmark and Northern Europe? • 25 Ronald D. Asmus Denmark and the War against Iraq: Losing Sight of Internationalism? • 49 Tonny Brems Knudsen Denmark and the Intergovernmental Conference: a Two-Level Game • 91 Finn Laursen Refugees in ‘Regions of Origin’: Towards a Common EU Policy? • 121 Finn Stepputat Chapter 2: Selected Documents • 145 Chapter 3: Danish Foreign Policy in Figures • 233 Chapter 4: Opinion Polls • 241 Chapter 5: Selected Bibliography • 253 Preface Danish Foreign Policy Yearbook 2004 is the eighth volume of the yearbook in its present form. It is the second year that it is being published by DIIS, the Danish Institute for International Studies. As previously, the present volume focuses on Danish foreign policy and Denmark’s position within an international and a transnational context, at the regional as well as the global level. Apart from the official outline of Denmark’s 2003 foreign policy by the permanent secretary of the Ministry of Foreign Affairs, we have included four scholarly articles, whose authors represent only themselves and their academic expertise. The scholarly articles are summarised at the outset of chapter 1. Then follows a small selection of official documents that we consider to be pioneering or characteristic of Danish foreign policy during the year. This is supplemented by essential statistics on Danish foreign policy and by some of the most relevant polls on the attitudes of the Danish population on key foreign policy questions. A bibliography then offers a limited selection of scholarly books, articles, and chapters published in 2003 in English, German or French dealing with the yearbook’s topic. The editors of Danish Foreign Policy Yearbook are Director Per Carlsen and Senior Research Fellow, dr.scient.pol. Hans Mouritzen. Stud.scient.pol. Line Selmer Friborg has served as an assistant editor for this volume. Language consultant has been dr. Noel Parker, University of Copenhagen. The editors Copenhagen, May 2004 CHAPTER 1 Articles ABSTRACTS The Atlantic Alliance at a New Crossroads: What Does It Mean for Denmark and Northern Europe? Ronald D. Asmus This chapter looks at the divide that emerged across the Atlantic and within Europe over the issue of war in Iraq. It analyzes the debate over why that split occurred. It lays out the debate within the US and in the Alliance over the strategic challenges facing the US and Europe and the call for the West to develop a new strategy toward the Greater Middle East. In this context, it looks at what kind of agenda could bring both sides of the Atlantic back together and assesses the implications of this current debate for Denmark as well as Northern Europe more generally. Denmark and the War against Iraq: Losing Sight of Internationalism? Tonny Brems Knudsen In March 2003, Denmark decided to join the US and a few other states in the war against Iraq with the declared goal of disarming that country and thereby enforcing the resolutions of the UN Security Council. Based on an analysis of the relevant UN Security Council resolutions, the discussions in the Security Council, and the evidence presented to the Council by the UN weapons inspectors before the war, the article examines the shifting justifications for the use of force put forward by Denmark and the other members of the coalition. It is argued that the war was contrary to the rules of international law and at odds with the machinery for the collective maintenance of international peace and security laid down in the UN Charter. The Danish participation in the war thus constitutes a clear and profound break with the Danish foreign policy tradition, including not least 2 DANISH FOREIGN POLICY YEARBOOK 2004 the doctrine of active internationalism which has been at the heart of the Danish international profile since the end of the Cold War. As a traditional supporter of the UN and international law and as a keen candidate for membership of the UN Security Council, Denmark has strong incentives for bringing new substance into the traditional claim of being an internatio- nalist small power. Denmark and the Intergovernmental Conference: a Two-Level Game Finn Laursen This article will describe and analyse Danish contributions to the European Convention (2002-03) and the subsequent Intergovernmental Conference (IGC 2003-04). How did a relatively EU-sceptical country respond to yet another treaty reform, arguably taking the EU towards ‘more Union’? We will study the preferences of the Danish Government and contributions by Danish members of the European Convention, especially the represen- tatives of the Danish Parliament. Furthermore, the Danish strategy during the IGC up to the failed summit in Brussels in December 2003 will be studied. The Danish Government was fairly supportive of the Convention’s draft proposal for a Constitutional Treaty, as finalised in July 2003, albeit changing position on the composition of the Commission at the start of the IGC because of domestic demands for maintaining one Commissioner per Member State. From December 1992, the main problem faced by the Danish Government during the IGC was safeguarding of the Danish exemptions, or “opt-outs”, so that decisions about the Constitutional Treaty and the exemptions could be kept separate. Refugees in ‘Regions of Origin’: Towards a Common EU Policy? Finn Stepputat This article analyses the recent proposals for common EU policies for asylum-processing, assistance and protection of refugees in their ‘regions of origin’ (nærområder). These proposals are part of the external dimension of EU Justice and Home Affairs that is being integrated with more traditional issues of foreign policy and development co-operation with third countries. Looking at the proposals in a historical perspective, the article argues that ARTICLES 3 many of the initiatives regarding refugees in poorer host countries are not new, but coincide with refugees being increasingly regarded as security threats by host governments, resulting in policies of encampment and containment. As refugees’ ‘mobile livelihood strategies’ seem to be one of the most important sources for their self-sufficiency and the development in host societies, EU attempts to promote local integration and develop- ment are likely to meet resistance from host governments, who will demand substantial ‘burden-sharing’ from the EU. Otherwise, the result will be further encampment. Apart from these contradictions, the proposals suffer from a number of unresolved legal problems. The International Situation and Danish Foreign Policy 2003 Friis Arne Petersen1 In my contribution to the Yearbook 2002, I noted that the Danish Govern- ment had initiated a process to adapt the foreign policy to a changing reality in international affairs. Denmark has traditionally conducted an engaged and active foreign policy, but obviously, in a rapidly changing world, we need to be ready and able to adjust objectives and priorities. We must be forward-looking, if we have an ambition of exerting influence on the world around us, and of contributing to the shaping of how the international community works. In June 2003 therefore, the Danish Government presented A Changing World – The Government’s Vision for New Priorities in Denmark’s Foreign Policy. This strategy defines the primary goal of Danish foreign policy as the promotion of Denmark’s security and prosperity based on a set of funda- mental values. The central ones are the individual, the community, freedom, democracy and security. The strategy emphasises that Denmark should exert maximum influence on the world around us, based on these fundamental values. Such an influence obviously requires focus, involve- ment, action, consistency and perseverance now and in the years to come. June 2003 also marked the presentation of A World of Difference: The Government’s Vision for New Priorities in Danish Development Assistance 2004- 2008. As is the case for the strategy A Changing World, the plan for develop- ment assistance takes its starting point in the basic precondition that the world has been changing dramatically in recent years. New possibilities have emerged, but so have new challenges. The new plan is therefore an element in the continued efforts to ensure that Danish development assistance remains focused and efficient. 1 Friis Arne Petersen is the Permanent Secretary in the Royal Danish Ministry of Foreign Affairs. 6 DANISH FOREIGN POLICY YEARBOOK 2004 Poverty is still one of the fundamental threats against stability and development, and the developing countries are particularly vulnerable to the consequences of terrorism. With A World of Difference, the Danish Govern- ment has put focus on how development assistance can be used as an instrument in the fight against terrorism. I will go more into detail on this issue later in the article.

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