WHO IS A NORMATIVE FOREIGN POLICY ACTOR? The European Union and its Global Partners EDITED BY NATHALIE TOCCI CONTRIBUTORS DANIEL S. HAMILTON RADHA KUMAR ANDREY S. MAKARYCHEV NATHALIE TOCCI BRANTLY WOMACK AND HAKIM DARBOUCHE MICHAEL EMERSON SANDRA FERNANDES RUTH HANAU-SANTINI IAN MANNERS GERGANA NOUTCHEVA CLARA PORTELA CENTRE FOR EUROPEAN POLICY STUDIES BRUSSELS The Centre for European Policy Studies (CEPS) is an independent policy research institute based in Brussels. Its mission is to produce sound analytical research leading to constructive solutions to the challenges facing Europe today. CEPS Paperbacks present analysis and views by leading experts on important questions in the arena of European public policy, written in a style geared to an informed but generalist readership. The views expressed in this report are those of the authors writing in a personal capacity and do not necessarily reflect those of CEPS or any other institution with which they are associated. This study was carried out in the context of the broader work programme of CEPS on European Foreign and Security Policy, which is generously supported by the Compagnia di San Paolo and the Open Society Institute. ISBN 13: 978-92-9079-779-1 © Copyright 2008, Centre for European Policy Studies. All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means – electronic, mechanical, photocopying, recording or otherwise – without the prior permission of the Centre for European Policy Studies. Centre for European Policy Studies Place du Congrès 1, B-1000 Brussels Tel: 32 (0) 2 229.39.11 Fax: 32 (0) 2 219.41.51 e-mail: [email protected] Internet: http://www.ceps.eu CONTENTS Preface Michael Emerson.......................................................................................................i 1. Profiling Normative Foreign Policy: The European Union and its Global Partners Nathalie Tocci...........................................................................................................1 1. Introduction .....................................................................................................1 2. The Dimensions of a Normative Foreign Policy.........................................4 3. The Interplay between the Three Dimensions of Normative Foreign Policy ..............................................................................................................12 4. Conditioning Factors....................................................................................16 5. Concluding Remarks....................................................................................21 References .............................................................................................................21 2. The European Union as a Normative Foreign Policy Actor Nathalie Tocci With case studies by Hakim Darbouche, Michael Emerson, Sandra Fernandes, Ruth Hanau-Santini, Gergana Noutcheva and Clara Portela ...............................24 1. Introduction ...................................................................................................25 2. Enlargement Policy towards Central and Eastern Europe, 1989-2007: Normative Intended Gergana Noutcheva .........................................................................................26 3. Sanctions against Belarus: Normative Unintended Clara Portela....................................................................................................31 4. EU Policies towards Russia, 1999-2007: Realpolitik Intended Sandra Fernandes ............................................................................................37 5. Policies towards Syria, 2003-07: Realpolitik Unintended Ruth Hanau Santini ........................................................................................41 6. Policies towards Kosovo, 1999-2007: Imperialistic Intended Gergana Noutcheva .........................................................................................46 7. Policies towards Israel-Palestine, 2000-07: Imperialistic Unintended Nathalie Tocci ..................................................................................................52 8. EU Trade Policy towards North Africa, 1995-2007: Status Quo Intended Hakim Darbouche ............................................................................................57 9. Policies towards Ukraine, 2005-20: Status Quo Unintended Michael Emerson .............................................................................................62 10. Conclusions....................................................................................................66 References .............................................................................................................72 3. The United States: A normative power? Daniel S. Hamilton................................................................................................ 76 1. Normative power?....................................................................................... 77 2. Domestic Currents and US Foreign Policy ............................................... 82 3. Case Studies .................................................................................................. 96 4. Summary and Conclusion: What do these typologies really tell us?.. 138 5. Postscript: Comparing the US and the EU.............................................. 142 References........................................................................................................... 147 4. Rebranding Russia: Norms, Politics and Power Andrey S. Makarychev ........................................................................................ 156 1. Introduction................................................................................................. 156 2. Norms, Normativity, Normalcy: Russia in Search of its Identity........ 161 3. Comparing the Cases by way of Conclusion.......................................... 202 References........................................................................................................... 204 5. India as a Foreign Policy Actor – Normative Redux Radha Kumar....................................................................................................... 211 1. Introduction................................................................................................. 211 2. The Case Studies......................................................................................... 219 3. Conclusion................................................................................................... 252 References........................................................................................................... 256 6. China as a Normative Foreign Policy Actor Brantly Womack .................................................................................................. 265 1. Introduction................................................................................................. 265 2. China’s Norms in Historical Context....................................................... 267 3. Case Studies ................................................................................................ 275 4. General Lessons from China as a Normative Foreign Policy Actor................................................................................................. 293 References........................................................................................................... 298 7. Comparing Normativity in Foreign Policy: China, India, the EU, the US and Russia Nathalie Tocci with Ian Manners ........................................................................ 300 1. Introduction................................................................................................. 300 2. Modulating the Analysis of Normative Foreign Policy: Introducing Shades of Grey ...................................................................... 302 3. Normative Differences Between Global Actors ..................................... 306 4. Normative Interactions Between Major Powers .................................... 314 5. Concluding Remarks................................................................................. 327 References ......................................................................................................328 PREFACE his book is without doubt a highly original and ambitious endeavour to peer into one of the major ‘known unknowns’ of the 21st century. T The question is what will become the rules of the game for foreign policy at the global level when, as obviously now emerges, there are multiple major powers on the world scene. The 20th century era when the United States came to rule virtually alone is over. This project starts from the perspective of the European Union. The EU sees itself as both an emerging global actor, and one that clearly identifies itself in principle with certain norms and values: democracy, human rights, international law and a functioning multilateral order. But we have to see what it does, as well as what it says. Is it true that the EU is a ‘normative’ foreign policy actor in practice? And what about the other major actors – China, India, Russia and the US? What do they say, and what do they do? What does it mean to be a ‘normative’ foreign policy actor? Who – if anyone – proves to be a normative foreign policy actor in practice? This project led by Nathalie Tocci applies a rigorous common analytical framework