THE EU AND THE WORLD: PLAYERS AND POLICIES POST-LISBON A HANDBOOK Edited by Antonio Missiroli The EU and the world: players and policies post-Lisbon A handbook Edited by Antonio Missiroli With contributions from Daniel Fiott Florence Gaub Sabina Lange José Luengo-Cabrera Roderick Parkes Eva Pejsova Nicu Popescu Lorena Ruano Gerald Stang Thierry Tardy as well as Jan Joel Andersson, Erika Balsyte, Jakob Bund, Marco Funk, Julia Lisiecka, Michal Makocki, Annelies Pauwels, Patryk Pawlak, Ginevra Sponzilli and John-Joseph Wilkins European Union Institute for Security Studies 100, avenue de Suffren 75015 Paris ISBN 978-92-9198-507-4 www.iss.europa.eu QN-06-16-217-EN-C ISBN 978-92-9198-505-0 DOI:10.2815/800215 QN-06-16-217-EN-N DOI:10.2815/123955 © EU Institute for Security Studies, 2016. Reproduction is authorised, provided the source is acknowledged, save where otherwise stated. Cover image: Hans Holbein the Younger, ‘The Ambassadors’(1533) © The National Gallery, London. Graphic design by Metropolis, Lisbon. Contents Introducing EU ‘foreign policy’ 5 Antonio Missiroli I. Understanding EU ‘foreign policy’ 9 1. Power and anarchy 9 2. Cooperation and integration 10 3. Ideas and culture 11 II. The institutional frame 13 1. The big picture 13 2. The HR/VP 18 3. The EEAS 27 III. The functional scope 45 1. CSDP operations and missions 45 2. Civilian capabilities and civil protection 61 3. Defence capabilities and industry 65 4. Non-proliferation and dual-use 71 5. Migration and home affairs 82 6. Trade and development 95 7. Energy and environment 106 IV. The geographical reach 111 1. South-eastern Europe 111 2. Eastern neighbours and Russia 118 3. Southern neighbours 124 4. Sub-Saharan Africa 131 5. Asia-Pacific 139 6. Latin America 147 7. Strategic partnerships 156 V. Annex 177 1. Relevant treaty articles 177 2. Essential reading 199 3. Abbreviations 202 4. Contributors 207 Introducing EU ‘foreign policy’ In the spring of 1533, Georges de Selve, a bishop who had represented France at the Diet of the Holy Roman Empire, travelled to London to visit his old friend Jean de Dinteville, then French Ambassador to the court of King Henry VIII. The visit took place at a critical moment in the early modern history of Britain and Europe, shortly before Anne Boleyn was crowned Queen and gave birth to the future Elizabeth I, and against the backdrop of the tumultuous religious, po- litical and social changes wrought by the Reformation. To mark the occasion, de Dinteville com- missioned the German artist Hans Holbein to paint their portraits. Nearly 500 years later, The Ambassadors represents one of the finest examples of Renaissance portraiture as well as being one of the most familiar and popular pictures in London’s National Gallery. Yet Holbein’s life-size picture of the two friends – showing de Dinteville on the left, and de Selve on the right – is also one of the most puzzling, filled as it is with objects that intrigue and perplex: a broken lute string, a celestial globe (on the top shelf) and a terrestrial one (on the lower shelf) showing the edge of the recently discovered continent of America, a range of instruments for measuring time and space, and a Lutheran hymn book – all depicted between a distorted skull (in the foreground) and a half-concealed crucifix (in the top left corner). The strong and somewhat cryptic symbolism of the painting has surely contributed to its popu- larity. It is also hard to find another artistic masterpiece equally capable of capturing both the multiple facets of sixteenth-century European culture and the birth of the modern European state system – and, with it, the dawn of a new profession: diplomacy. It is also for this reason that the Institute has chosen The Ambassadors for the cover of this volume, which is intended to offer the interested twenty-first century reader – whether a graduate student, academic, experienced practitioner, diplomat, think tanker or journalist – a portrait of how the European Union works in its dealings with the outside world, and how it conducts diplomacy, defence, development and other related policies. The main rationale behind this publication – conceived as a handbook on the workings of the EU – is the conviction that neither the academic literature on European integration and the EU’s role in the world, nor the flurry of think tank and media coverage of what the EU does (or does not) and should do (or not do) in the field of foreign policy contribute sufficiently to a balanced ap- proach to or full understanding of the constraints and opportunities that exist in this domain. This handbook tries to strike a balance between accessibility of language and depth of analysis; between facts, figures and explanations; between institutions and policies; and between coun- tries, regions and organisations. In order to achieve this objective and cover such a large ground, 5 The EU and the world: players and policies post-Lisbon — a handbook it has been necessary to combine the competences and skills of the entire EUISS team in a truly Towardscollegial effort. an EUOur globalambition strategy is to provide – Consulting a useful compass the forexperts those seeking to navigate the intricacies of EU foreign policy-making (but also its achievements) at a time when the merits of collective action at the European level are increasingly questioned. The speed at which change now occurs both internationally and domestically may eventually prompt a further revision of the institutional and policy frameworks analysed here. This hand- book – published also in e-book format – is thus sufficiently flexible to permit updating in the future, making it a sort of ‘app’ to download onto our mental ‘devices’. *** The institutional context in and through which the European Union carries out its external ac- tion – starting with the Common Foreign and Security Policy (CFSP) and the Common Security and Defence Policy (CSDP) – is quite complex, difficult to conceptualise, competence- and instru- ment- rather than policy-driven, and highly fragmented. This is the consequence of the way in which the system and all related common policies have evolved over time: incrementally and by the accumulation and juxtaposition of ad hoc norms and bodies rather than through a previously agreed overall design. While the level of public support for ‘more’ EU in the field of external af- fairs seems to be still quite high right across the continent, the large number of players and for- mats for shaping, making and implementing decisions hardly facilitates a thorough understand- ing of the modus operandi of the Union in this domain. It is not by accident that one of the most successful metaphors associated with the Union’s external action has been the ‘capability-expec- tations gap’, a term coined over two decades ago by Christopher Hill. The legal framework is no less complicated, at the treaty level as much as across the numerous procedures and regulations that govern the Union’s external action. The first and second chapters of this handbook offer some guidance and essential information on where EU diplomacy comes from and how it works. In order to do so, the publication opens with a quick overview of the intellectual frameworks through which the scholarly world has stud- ied and analysed Europe’s ‘foreign policy’ – a broad and loose term that tends to encompass more than just CFSP/CSDP but less than the full spectrum of external operations of all EU institutions – and to factor in the combined impact of the policies, positions and actions of member states in other institutions and organisations, starting with NATO and the UN. The overview continues with more detailed analyses of the main players in the EU system and their interplay, through which it tries to convey both past dynamics and present trends – a few years into the implementation phase of the Lisbon Treaty, halfway into the term of current office 6 Introducing EU ‘foreign policy’ holders (2014-2019) and the execution of the multi-annual budgetary cycle (2014-2020), at the very beginning of the implementation of the 2016 EU Global Strategy (EUGS) on foreign and security policy, and ahead of both the beginning of the Trump administration in the US and the foreseeable changes that the ‘Brexit’ vote may trigger. In doing so, it examines both the broader institutional context (European Commission, Parliament and Council) and the specific CFSP/ CSDP set-up (HR/VP, EEAS and other bodies) with a view to highlighting the challenges and op- portunities they create for Europe’s ‘foreign policy’. The third section analyses the sectoral and functional policies that underpin the EU’s external action, starting from the ‘core’ security and defence components, touching upon the internal security dimension, and completing the picture with both ‘old’ and ‘new’ policy areas where com- petences are often shifting and overlapping. The fourth section follows a primarily geographical approach, from close by to far away, and ends with a summary overview of the Union’s bilateral ‘strategic partnerships’. Finally, the annex of- fers a selection of relevant treaty articles and an essential bibliography. *** A collective endeavour does not rule out acknowledging individual contributions. Accordingly, Daniel Fiott has been the main author for chapter I and Antonio Missiroli for chapter II. Thierry Tardy covered CSDP missions and operations and civilian capabilities; Daniel Fiott defence capa- bilities and industrial base; Roderick Parkes migration and home affairs; Patryk Pawlak civil pro- tection and cyber security; José Luengo-Cabrera trade; and Gerald Stang space, development, energy and environment. Moreover, Sabina Lange covered the Western Balkans, Nicu Popescu the eastern neighbours and Russia, Florence Gaub the southern neighbours, José Luengo-Cabrera Sub-Saharan Africa, Eva Pejsova the Asia-Pacific, and Lorena Ruano Latin America.