ZÜRCHER BEITRÄGE ZUR SICHERHEITSPOLITIK NR. 77 Editor: Anne Deighton, with Victor Mauer SECURING EUROPE? IMPLEMENTING THE EUROPEAN SECURITY STRATEGY Series Editors Andreas Wenger and Victor Mauer Center for Security Studies, ETH Zurich All issues of the «Zürcher Beiträge zur Sicherheitspolitik», as well as the other publications of the Center for Security Studies, can also be accessed in full-text format on the internet at: www.css.ethz.ch/publications Andreas Wenger and Victor Mauer (eds.) Center for Security Studies, ETH Zurich © 2006 ETH Zürich Center for Security Studies Seilergraben 45–49 ETH Zentrum SEI, 8092 Zürich e-mail: [email protected] All rights reserved. This material may not be reprinted or reproduced in photographic or electronic format, in part or in whole, without written permission from the Center for Security Studies. The opinions expressed in the «Zürcher Beiträge zur Sicherheitspolitik» reflect the personal views of the authors in question. Layout and typesetting: Fabian Furter Fonts: Adobe Garamond pro and The Sans Printer: Villiger-Druck, CH-5643 Sins ISBN 3-905696-11-8 ISSN 1423-3894 ZÜRCHER BEITRÄGE ZUR SICHERHEITSPOLITIK NR. 77 Editor: Anne Deighton, with Victor Mauer SECURING EUROPE? IMPLEMENTING THE EUROPEAN SECURITY STRATEGY Series Editors Andreas Wenger and Victor Mauer Center for Security Studies, ETH Zurich CSS An ETH Center Contents Contributors Introduction 9 By Anne Deighton Part I: European Security in Practice Foreign Policy and the European Union’s Security Strategy By Anne Deighton ESDP Deployments and the European Security Strategy By Graham Messervy-Whiting Money Matters: Financing EU Crisis Management By Antonio Missiroli Part II: The European Union: A Multilateral Actor ESDP and Civil/Military Cooperation: Bosnia and Herzegovina, 9 By David Leakey Implementing ESDP Operations in Africa By Pierre-Antoine Braud Assessing the Impact of the European Union as an International Actor By Damien Helly Th e European Union and Counter-Terrorism By Victor Mauer 3 Part III: And Now? An American Eulogy for European Defence By Kori Schake Securing Europe after Enlargement By Graham Avery EU Foreign Policy: Where Next after the European SecurityStrategy? By Jim Cloos Appendix Th e European Security Strategy 4 Contributors Graham Avery was until recently a Director in the European Commis- sion, responsible for Strategy, Coordination and Analysis in the Direc- torate General for External Relations. He is now a Senior Member of St. Antony’s College, University of Oxford. He writes here in a personal capacity. Dr Pierre-Antoine Braud is a Research Fellow at the Institute for Securi- ty Studies of the European Union, Paris. He deals with African issues – in particular confl ict and post-confl ict management, and EU-Africa rela- tions. Before joining the Institute, he was a political offi cer to three UN Peacekeeping Operations (Bosnia, DR-Congo, Ivory Coast) and also a consultant for governments, NGOs and think tanks on central African confl icts. Jim Cloos is a Director in the Council of the European Union’s General Secretariat. He writes here in a personal capacity. Dr Anne Deighton is a member of the Department of Politics and In- ternational Relations, University of Oxford, and was on leave for three years as a faculty fellow of the Geneva Centre for Security Policy, Geneva. She is a member of the Council and Executive Committee of Chatham House, London. She has published extensively on the development of the European Union, including ‘Th e European Security and Defence Policy’, Journal of Common Market Studies, 40/4, 2002. Dr Damien Helly is EU Advocacy and Policy Coordinator for Safer- world, an independent non-governmental organisation, and is based in Brussels. He was formerly Caucasus Project Director for the International Crisis Group, and has researched and written extensively on the European Union’s external actions in the former Soviet Union and the Union’s new 5 neighbourhood. He is the co-author of L’Union européenne, acteur inter- national, (2005) and of articles on EU foreign policy and the Caucasus. Major General David Leakey CMG, CBE, was commissioned into the Royal Tank Regiment of the British Army. He has undertaken opera- tional tours with the UN in Cyprus, with NATO in the Balkans, and in Northern Ireland. He has also held key appointments in the Operations Directorate in the Ministry of Defence. Between December 2004 and December 2005, he was Commander of the European Force (EUFOR) in Bosnia and Herzegovina. From March 2007, he will take over as Director General of the EU Military Staff in Brussels. Dr Victor Mauer is Deputy Director of the Center for Security Studies at ETH Zurich, Switzerland. He specialises in European security, European integration, and transatlantic relations. He has published on contempo- rary history as well as on current European and transatlantic aff airs. Major General (retd) Graham Messervy-Whiting CBE, is Deputy Di- rector of the Centre for Studies in Security and Diplomacy at the Uni- versity of Birmingham, UK. In 2000, Javier Solana recruited Graham Messervy-Whiting to assist him in the development of a security and de- fence capability for the European Union, including the design of an EU Military Staff (EUMS). Graham Messervy-Whiting became the EUMS’ fi rst Chief of Staff in 2001. Dr Antonio Missiroli is Chief Policy Analyst at the European Policy Centre in Brussels (http://www.theepc.be). Between 1998 and 2005, he was a Research Fellow at the Western European Union/European Union Institute for Security Studies in Paris. 6 Professor Kori Schake is a Research Fellow at the Hoover Institution and the Distinguished Chair of International Security Studies at the US Military Academy. She served as the Director for Defense Strategy and Requirements on the US National Security Council, 2002–2005. Her most recent publication is National Security: A Better Approach, with Bruce Berkowitz, in Hoover Digest. 7 Introduction Anne Deighton In March 2006, a workshop of policymakers, think-tank analysts and academics was convened in Chatham House, London, to assess the sub- stantive impact of the European Security Strategy (ESS). Th e strategy had been agreed by the Council of the European Union in December 2003, little more than two years previously. Th e European Programme at Chatham House, under the skilled leadership of Professor Richard Whit- man, prepared the workshop programme, with support from the Gene- va Centre for Security Policy, Switzerland. Th e UK Foreign and Com- monwealth Offi ce gave generous fi nancial and logistical assistance. Sven Biscop, Brian Crowe, Candice Dodd, Timo Noetzel and Mateja Peter provided valuable administrative or intellectual support. Victor Mauer, and the Center for Security Studies at the Swiss Federal Institute of Tech- nology, Zurich, played an indispensable role in the preparation of the book. Our debate, under the Chatham House Rule, was also informed by valuable presentations from three practising senior offi cials from the UK, the UN, and the European Commission. Th is book is derived from that workshop. *** Attendees at the workshop broadly agreed that the European Security Strategy is a document that consolidates the broad outlines of the role of the European Union in the international system thus far. It is also a docu- ment which is a rough guide for future action by the Union and about the values upon which action should be based, but it is not a strategy in the conventional sense in which the word is understood. Th e discussion at the workshop quickly extended beyond the content and technical aspects of the European Security Strategy itself, to an ex- 9 Securing Europe? Implementing the European Security Strategy amination of the European Union as an international player, and to the developments in the Common Foreign and Security Policy (CFSP) and the European Security and Defence Policy (ESDP). Many were quietly optimistic. Th e Union has positioned itself in the international system with greater clarity than was the case two years ago. It has started to react to the changing security needs of the post-cold war era. It has acted globally. It has recognised the mutually reinforcing nature of its relations with other international bodies, including both the UN and NATO, as well as human rights bodies and global fi nancial organisations. Recent polls that reveal the widespread acceptance of the Union as an international actor in many spheres of security policy was seen as a very positive sign, especially during a period of other constitutional and economic diffi culties in Europe. Th is is despite the continuing temptations for certain states to work in smaller, ad hoc, groups of states – although state interests were far less intensively discussed than might have been expected. Th is book is a partial assessment of this record thus far, and is based around two themes. Th e fi rst theme relates to the policy priorities of the Union. It was clear that the debate within Europe is increasingly focused upon what it is that a Union foreign policy should actually now be trying to do in the world. Every state and institution acting in the security sector is of course also aware of the magnitude and diversity of human security issues and the diffi culties of prioritisation when only limited funds are available. Both short and long-term commitments are required, yet outcomes are notoriously hard to anticipate. Th e idea that so-called ‘soft’ security issues are in some way easy to resolve is palpably wrong, as both states and insti- tutions have found. So the notion that there can be a ‘quick-fi x’ solution to most contemporary security problems is not tenable, not least as there is a frequent lack of agreement both about the causes and the best kinds of solutions to many of the security issues with which the EU is now grap- pling.