Analysing the Foreign Policy of Small States in the EU Also by Henrik Larsen FOREIGN POLICY AND DISCOURSE ANALYSIS: France, Britain and Europe (1997) THE ESDP AND THE NORDIC COUNTRIES: Four Variations on a Theme (with N. Græger and H. Ojanen) (2001) Analysing the Foreign Policy of Small States in the EU The Case of Denmark Henrik Larsen Jean Monnet Professor in European Foreign and Security Policy Integration, University of Copenhagen © Henrik Larsen 2005 Softcover reprint of the hardcover 1st edition 2005 978-0-333-96473-6 All rights reserved. No reproduction, copy or transmission of this publication may be made without written permission. No paragraph of this publication may be reproduced, copied or transmitted save with written permission or in accordance with the provisions of the Copyright, Designs and Patents Act 1988, or under the terms of any licence permitting limited copying issued by the Copyright Licensing Agency, 90 Tottenham Court Road, London W1T 4LP. Any person who does any unauthorised act in relation to this publication may be liable to criminal prosecution and civil claims for damages. The author has asserted his right to be identified as the author of this work in accordance with the Copyright, Designs and Patents Act 1988. First published in 2005 by PALGRAVE MACMILLAN Houndmills, Basingstoke, Hampshire RG21 6XS and 175 Fifth Avenue, New York, N.Y. 10010 Companies and representatives throughout the world. PALGRAVE MACMILLAN is the global academic imprint of the Palgrave Macmillan division of St. Martin’s Press, LLC and of Palgrave Macmillan Ltd. Macmillan® is a registered trademark in the United States, United Kingdom and other countries. Palgrave is a registered trademark in the European Union and other countries. ISBN 978-1-349-42811-3 ISBN 978-0-230-51142-2 (eBook) DOI 10.1057/9780230511422 This book is printed on paper suitable for recycling and made from fully managed and sustained forest sources. A catalogue record for this book is available from the British Library. Library of Congress Cataloging-in-Publication Data Larsen, Henrik, 1964– Analysing the foreign policy of small states in the EU : the case of Denmark / Henrik Larsen. p. cm. Includes bibliographical references and index. ISBN 0–333–96473–X (alk. paper) 1. Denmark – Foreign relations – 1972– 2. European Union – Foreign relations. I. Title. DL261.L36 2005 327.48904Ј09Ј045—dc22 2005041542 10987654321 14 13 12 11 10 09 08 07 06 05 Printed and bound in Great Britain by Antony Rowe Ltd, Chippenham and Eastbourne Contents List of Figures vii List of Tables ix Acknowledgements x List of Abbreviations xii 1 Setting the Scene: Small State Foreign Policy in the EU and the Case of Denmark 1 2 Theoretical Background and Analytical Framework 13 National foreign policy and international organisations 13 The impact of international organisations on national foreign policy and the basic approach of the book 15 An analytical framework for the study of Danish foreign policy content in an EU context 39 3 Policy towards EU Member States: the Role of the EU 64 I. The EU 65 II. Denmark 67 III. Conclusion 76 4 The Fight against Terrorism 78 I. The EU 78 II. Denmark 84 III. Conclusions 98 5 The Balkans 102 I. The EU 102 II. Denmark 108 III. Conclusions 119 6 Development and Aid 123 I. The EU 123 II. Denmark 127 III. Conclusions 143 v vi Contents 7 Africa 147 I. The EU 147 II. Danish policy 151 III. Conclusions 163 8 Latin America 166 I. The EU 166 II. Denmark 171 III. Conclusions 182 9 Trade 185 I. The EU 185 II. Denmark 187 III. Conclusions 192 10 Conclusions and Wider Perspectives for the Analysis of National Foreign Policy in an EU Context 195 I. Presentation of the findings 195 II. The broader implications for Danish foreign policy: the role of the EU across the board 201 III. Is the study of Denmark of general interest for the study of small states in the EU? 208 Notes 213 Bibliography 221 Index 234 List of Figures 2.1 European foreign policy, taken from White (2001) 19 2.2 Policy conducted mainly within the EU 40 2.3 Policy conducted inside and outside the EU 40 2.4 Policy conducted mainly outside the EU 41 2.5 An active or passive Danish policy in the EU? 41 2.6 Constitutive effects of EU foreign policy? 42 2.7 Central factors explaining the relationship between Danish foreign policy and EU policy 45 2.8 Articulation of actorness 52 2.9 Strong EU policy, weak Danish actorness 53 2.10 Weak EU policy, strong Danish actorness 54 2.11 Strong EU policy, strong Danish actorness 55 2.12 Weak EU policy, weak Danish actorness 55 4.1(a) Articulation of actorness 89 4.1(b) Articulation of actorness 90 4.2 Danish policy inside or outside the EU? 93 4.3 Level of Danish policy activity within the EU 97 4.4 Constitutive effects? 98 4.5 Why this state of affairs? The background of Danish policy. A summary 101 5.1 Articulation of actorness 111 5.2 Danish policy inside or outside the EU? 116 5.3 Level of Danish policy activity within the EU 118 5.4 Constitutive effects? 119 5.5 Why this state of affairs? The background of Danish policy. A summary 121 6.1 Community development policy concepts 125 6.2 Denmark’s development policy concepts 131 6.3 Articulation of actorness 134 6.4 Danish policy inside or outside the EU? 139 6.5 Level of Danish policy activity within the EU 141 6.6 Constitutive effects? 142 6.7 Why this state of affairs? The background of Danish policy. A summary 146 7.1 Articulation of actorness 155 7.2 Danish policy inside or outside the EU? 159 vii viii List of Figures 7.3 Level of Danish policy activity within the EU 160 7.4 Constitutive effects? 162 7.5 Why this state of affairs? The background of Danish policy. A summary 165 8.1 Articulation of actorness 175 8.2 Danish policy inside or outside the EU? 177 8.3 Level of Danish policy activity within the EU 180 8.4 Constitutive effects? 181 8.5 Why this state of affairs? The background of Danish policy. A summary 184 9.1 Articulation of actorness 190 9.2 Danish policy inside or outside the EU? 191 9.3 Level of Danish policy activity within the EU 191 9.4 Constitutive effects? 192 9.5 Why this state of affairs? The background of Danish policy. A summary 194 List of Tables 2.1 Four modes of Danish policy vis-à-vis the EU 56 3.1 Bilateral meetings Denmark–EU member states (plus candidates) 73 10.1 The seven policy areas examined. Summary of conclusions 197 10.2 The remaining policy areas. Some preliminary suggestions on the basis of the model 202 ix Acknowledgements This book is a result of a long process, and I owe a great debt to many people and institutions who have helped me on the way. Participants in panels at BISA, EUSA and ISA where I have presented work related to the book have given me many helpful comments. In par- ticular Chris Hill has commented on conference papers on two occasions as panel chair at BISA and several of his comments have found their way into the book. I am especially grateful for his suggestion to eschew the use of the term ‘residue’. Thanks are also due to David Allen, Wolfgang Deckers, Donald Hancock, Rita Jokela, Mette Jolly, Ian Manners, Helena Sjursen, Karen Smith, Brian White and Richard Whitman. Trine Flockhart and Morten Kelstrup provided comments on a paper presented at the Annual Conference of the Danish Society for European Studies in Aalborg in September 2003. I am grateful for their suggestions to include new policy areas among the cases examined (although it gave me a bit more work!) and for figures illustrating the main points. Thanks are also due to the students in my Master’s seminar on European Foreign Policy at the Institute of Political Science, University of Copenhagen, for their comments on chapters of the book. I also owe a great debt to politicians, academics and practitioners who agreed to be interviewed on issues in relation to the book. My sincere thanks are due to MPs (Members of the Folketing) Charlotte Antonsen, Claus Larsen-Jensen, Jeppe Kofoed, Mogens Lykketoft, Jens Hald Madsen, Niels Helveg Petersen and Jan Trøjborg. Sincere thanks are also due to Kenneth Nyström from Eastern European Studies, Copenhagen University, for sharing his knowledge on the Nordic countries and the Balkans with me and to Michael Kluth, Roskilde University, for commu- nicating his personal research results on Denmark and Latin America with me via e-mail. I am also very grateful to the many people in the Danish Civil Service, in particular in the Ministry of Foreign Affairs, who allowed me time to interview them. Their help was indispensable for writing the book. Many shared general insights with me that went far beyond the area in which they themselves were engaged directly. Kasper Høeg-Jensen kindly read through the manuscript and provided insightful comments on both the empirical aspects and the broader argument of the book for which I am grateful. I am also indebted to Palgrave Macmillan’s anonymous referee. The clear and perceptive x Acknowledgements xi suggestions for improvements from a different epistemological position from my own have no doubt contributed to a better book. I owe special thanks to my research assistant Signe Winther Jensen. Her detailed, intelligent and constructive comments on the draft chapters and her independent efforts in many fields have contributed to making this a better and more readable book.