Permanent representation of France to European Union BRIEF GUIDE TO THE EUROPEAN SECURITY AND DEFENCE POLICY (ESDP) 2 3 4 Summary December 2005 Foreword 8 1. HISTORICAL BACKGROUND 10 1.1 CFSP in brief 10 1.2 First stages of the ESDP: 1998-2002 11 1.3 A doctrine for Europe: the European Security Strategy 12 2. ACTION UNDER THE ESDP 14 2.1 Initial activities 14 a) Petersberg tasks 14 b) Civilian aspects of crisis management 14 2.2 An expanding field of action 14 a) Armaments cooperation œ European Defence Agency 14 b) European Union cooperation in the security field 15 c) Counter-terrorism 16 d) Space 16 2.3 Relations with third countries and the other international organizations with a security remit 17 a) Relations with NATO 17 b) Relations with the UN and the regional international organizations 18 c) Relations with third countries 18 d) W EU legacy 19 e) European multinational forces 19 3. POLITICO-MILITARY STRUCTURES AND PROCEDURES 21 3.1 Structures 21 a) Politico-military bodies of the Council 21 b) Integrated structures œ General Secretariat of the Council 23 c) Agencies 26 3.2 Crisis management: ways and means 28 a) Crisis-management procedures 28 5 b) Financing civilian and military operations 29 c) Exercises 30 3. ESDP OPERATIONS 31 4.1 Military operations 31 a) Concordia 31 b) Artemis 32 c) Althea 32 4.2 Civilian operations 33 a) EU Police Mission in Bosnia-Herzegovina 33 b) EU Police Mission in FYROM 34 c) EU Rule of Law Mission in Georgia 35 d) EU Police Mission in DRC 36 e) EU Rule of Law Mission for Iraq 36 f) EU Monitoring Mission in the W estern Balkans 37 g) EU Aceh Monitoring Mission 37 h) European Coordinating Office for Palestinian Police Support and EU Police Mission for the Palestinian Territories 38 i) EU Border Assistance Mission for the Rafah Crossing Point 39 4.3. EU civilian and military supporting action to the African Union in Darfur 40 4.4 Cooperation in the security field 41 5. DEVELOPING EU CAPABILITIES 43 5.1 Military capabilities 43 a) Headline Goal 2010m 43 b) Battlegroups 44 c) Capability Development Mechanism (CDM) 44 d) European Capability Action Plan (ECAP) 45 5.2 European Defence Agency (EDA) 45 a) Agency mission 45 b) Organization of the Agency, decision-making, integration into the EU structures 46 5.3 Civilian capabilities 47 a) Action plan for developing civilian capabilities 48 b) Civilian Headline Goal 2008 49 6 C ONCLUSION/PROSPECTS 50 Notes 51 Appendices 52 1. Chronology of Defence Europe 52 2. Technical glossary 56 3. List of acronyms 60 4. Provisions of the Draft Treaty establishing a Constitution for Europe on the ESDP 62 7 F oreword The European Security and Defence Policy (ESDP), which constitutes the operational arm of the Common Foreign and Security Policy (CFSP) for both military and civilian purposes, is today one of the most dynamic areas of the European project. After the adoption of the Maastricht Treaty in 1992, which established the CFSP and looked towards the creation of a —European Defence“ in the long term, the Franco-British Saint-Malo summit in December 1998 initiated the ESDP, whose basic text is the declaration of the Cologne European Council in June 1999. Progress since then has been extremely rapid, from developing the concepts and setting up the politico-military structures within the European institutions to deploying the first operations in the field. To date, the EU has launched 13 ESDP operations: three military operations (in the Former Yugoslav Republic of Macedonia (FYROM), the Democratic Republic of Congo (DRC) and Bosnia-Herzegovina), eight civilian operations (in the W estern Balkans, Bosnia-Herzegovina, FYROM, Georgia, Aceh/Indonesia, DRC, Iraq, Palestinian Territories), a civilian and military action to support the African Union in Sudan/Darfur, and a cooperation mission in the field of security in the DRC. On 1 January 2006, another police mission will be deployed in the Palestinian Territories. The European Union is gradually emerging today as a major player on the international scene, with a strategic vision, embodied in the European Security Strategy, and diplomatic, civilian and military crisis- management instruments, which complement the other available tools (economic, commercial, humanitarian and development aid). It is not only present on the European continent œ in the W estern Balkans and southern Caucasus œ but also in Africa, the Middle East and Asia. These recent developments are radically changing the political nature of the EU, which is now capable of carrying its founding values of peace and security beyond its borders. Still too little is known about the ESDP. This brief guide aims to make it easier to understand, both for research workers and students and for the civilian and military officials, especially those, increasingly numerous, called upon to work in European politico-military institutions 8 o r take part in EU crisis-management operations. This guide complements the CFSP guide published by the French Foreign Ministry. Sylvie Bermann Ambassador, Representative of France to the European Union Political and Security Committee The guide was written by the French Delegation to the EU Political and Security Committee (Fabien Penone, Hélène Le Gal, Dana Purcarescu, Jérôme Montant and Xavier Domino), with the assistance of the French military representation to the EU. 9 1 . HISTORICAL BACKGROUND 1.1. CFSP in brief - ith its far-reaching implications for the sovereignty of States, the idea of a Common Foreign and Security Policy (CFSP) has long been viewed with serious reservations, the most obvious sign of which was the failure of the European Defence Community (EDC) in 1954. Not addressed in the 1957 Treaty of Rome, the field of foreign policy re-emerged in June 1970, when the foreign ministers of the Six proposed developing —European Political Cooperation“: this was the birth of EPC, whose objectives (harmonization of positions, consultations and, where necessary, joint action) and methods (biannual meetings of foreign ministers and quarterly meetings of political directors in the political committee format) were defined in the Davignon report (published in October 1970). This intergovernmental process of consultation and decision- making based on consensus was progressively strengthened: more frequent meetings, establishment of a European communication network (COREU œ CORrespondance EUropéenne) following the Copenhagen report in 1973, creation of the Troika following the London report in 1981). This was formalized in Title III of the Single European Act (February 1986), which gave it legal status and created its General Secretariat, placed under the Presidency‘s authority. The Treaty on European Union (TEU, adopted in Maastricht on 7 February 1992 and entered into force on 11 November 1993) was both the logical culmination of the 20 years of EPC and a resolutely new step: it created the CFSP, which would henceforth constitute the second pillar of the European Union. Compared with EPC, the CFSP represented a significant advance on at least three points: first, it covered all areas of foreign and security policy, including —the eventual framing of a common defence policy“; next, it required Member States to —ensure that their national policies are consistent with the common positions“; finally, it created a new legal instrument, Joint Action, which allowed the EU‘s financial resources to be mobilized. Further innovations were introduced by the Treaty of Amsterdam (signed on 2 October 1997 and entered into force on 1 May 1999), which established a High Representative for the CFSP, a post held 10 s ince 1999 by Javier Solana, and gave the European Council greater competence to establish guidelines notably in the field of security and defence. Finally, the Treaty of Nice (signed on 26 February 2001 and entered into force on 1 February 2003) institutionalized the Political and Security Committee (PSC), responsible for contributing to the definition of EU policies in the field of CFSP, introduced enhanced cooperation in the second pillar (except for defence), and adapted Article 17 of the TEU to developments in the field of defence (humanitarian and peacekeeping operations). The CFSP is both the institutional framework which gave birth to the ESDP and the political framework which justifies its development. 1.2. First stages of the ESDP: 1998-2002 To be put into effect, the ESDP needed not only the institutional framework provided by the CFSP, but also the common political will of the Member States. This was born of the lessons drawn from the Yugoslav crises and in particular the Bosnian tragedy. Europe‘s inability to resolve a conflict on its borders without American assistance, mobilized through NATO, became glaringly obvious. The French and the British drew the conclusions from this at the 1998 Saint-Malo bilateral summit, which defined the framework and main objectives of the ESDP. The Cologne European Council in 1999 saw the Fifteen sign up to the objectives set at that summit. From 1998 to 2002, the ESDP advanced at each successive European Council, gradually becoming a reality. At the Feira European Council (1999), the EU decided to launch the ESDP‘s civilian arm. At the Nice European Council (2000), further important steps were taken with the incorporation of the W estern European Union (W EU), creation of permanent structures within the Council to deal with ESDP matters and definition of EU defence relations with third countries and NATO. One year later, at the Laeken European Council (2001), the ESDP was declared operational. The following year, in 2002, the EU enlarged the ESDP‘s missions to include the fight against terrorism (Seville European Council) and concluded an agreement with NATO (known as —Berlin Plus“) at the Copenhagen European Council, allowing the EU to have recourse to NATO collective assets and capabilities.