UPGRADING THE EU'S ROLE AS GLOBAL ACTOR INSTITUTIONS, LAW AND THE RESTRUCTURING OF EUROPEAN DIPLOMACY MICHAEL EMERSON ROSA BALFOUR TIM CORTHAUT JAN WOUTERS PIOTR MACIEJ KACZYŃSKI THOMAS RENARD CENTRE FOR EUROPEAN POLICY STUDIES (CEPS) EGMONT - THE ROYAL INSTITUTE FOR INTERNATIONAL RELATIONS EUROPEAN POLICY CENTRE (EPC) LEUVEN CENTRE FOR GLOBAL GOVERNANCE STUDIES, UNIVERSITY OF LEUVEN The Centre for European Policy Studies (CEPS) is an independent policy research institute in Brussels. Its mission is to produce sound policy research leading to constructive solutions to the challenges facing Europe. The views expressed are entirely those of the authors and should not be attributed to any institution with which they are associated. ISBN 978-94-6138-052-4 © Copyright 2011, Centre for European Policy Studies and the authors. 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: (32.2) 229.39.11 Fax: (32.2) 219.41.51 E-mail: [email protected] TABLE OF CONTENTS PREFACE ................................................................................................................... i 1. Summary and Conclusions ............................................................................. 1 1.1 Purpose ...................................................................................................... 1 1.2 Analytical and legal framework ............................................................. 3 1.3 Upgrading the EU in international relations ........................................ 6 1.4 The costs of non-Europe … and the restructuring of European diplomacy .................................................................................................10 1.5 The new diplomacy .................................................................................12 2. Why should the EU be strongly represented in the international arena? ........................................................................................................................... 14 3. Legal Basis in the Lisbon Treaty and International Law .......................... 21 4. Hybrid Combinations of the EU & Member States in International Relations .......................................................................................................... 37 4.1 Categories .................................................................................................37 4.2 Guidelines for representation of the EU and member states ............39 4.3 Overview of the status quo and looking ahead...................................40 5. Restructuring of European Diplomatic Services ........................................ 47 5.1 Setting up the European External Action Service (EEAS) .................47 5.2 The costs of non-Europe and the restructuring of European diplomacy .................................................................................................52 6. Status Quo & Perspectives for Selected International Organisations, Conventions, Agreements & Summitry ...................................................... 65 6.1.1 UN General Assembly ...............................................................65 6.1.2 UN Security Council ...................................................................68 6.1.3 International Monetary Fund ....................................................70 6.1.4 World Bank ..................................................................................75 6.1.5 Food and Agriculture Organization (FAO), IFAD and WFP76 6.1.6 International Labour Organization (ILO) ................................77 6.1.7 UNCTAD .....................................................................................78 6.1.8 UN Development Programme (UNDP) ..................................78 6.1.9 Development cooperation ........................................................ 78 6.1.10 UN Environment Programme (UNEP) ................................... 80 6.1.11 UN Framework Convention on Climate Change (UNFCCC) & Kyoto Protocol ..................................................................................... 82 6.1.12 World Health Organization (WHO) ........................................ 84 6.1.13 World Trade Organization (WTO) and World Customs Organization (WCO) .............................................................................. 85 6.1.14 International Maritime Organization (IMO) and related agreements ............................................................................................... 86 6.1.15 Bank for International Settlements (BIS) and financial market regulation ................................................................................................. 88 6.1.16 Other economic organisations and regulatory agencies ...... 90 6.1.17 International courts .................................................................... 91 6.1.18 UNHCR (refugees), Human Rights Council, IOM (migration) 93 6.1.19 Arms control – conventions and organisations ..................... 94 6.2 European and Euro-Atlantic multilateral organisations ................... 96 6.2.1 OECD and IEA ........................................................................... 96 6.2.2 Council of Europe, European Convention (and Court) for Human Rights ......................................................................................... 98 6.2.3 OSCE ............................................................................................ 99 6.2.4 European Economic Area (EEA) ............................................ 101 6.2.5 EBRD .......................................................................................... 101 6.2.6 Energy Charter Treaty ............................................................. 102 6.2.7 Energy Community Treaty (for South-East Europe) .......... 102 6.2.8 NATO ........................................................................................ 102 6.3 Semi-institutionalised summitry and diplomacy ............................. 105 6.3.1 G7/8/20..................................................................................... 105 6.3.2 Bilateral summits (strategic partnership cases) ................... 108 6.3.3 European neighbourhood and other multilateral regional processes ................................................................................................ 108 6.3.4 Conflict prevention/resolution .............................................. 112 Glossary............................................................................................................... 115 Annexes .............................................................................................................. 117 Annex A. Overview of EU Participation in the UN System ....................117 Annex B. International Organisations and Conventions in which the EU Participates fully by virtue of a Regional Economic Integration Organisation (REIO) or Regional Integration Organisation (RIO) clause .......................................................................................................120 Annex C. Overview of EU Participation in International Maritime Organizations .........................................................................................123 Annex D. Voting Weights on the Board of the IMF .................................125 Annex E. Voting Weights on the Board of the World Bank, before and after 2010 Reform ...................................................................................126 Annex F. Constituencies on the Boards of the IMF and World Bank ....127 Annex G. Shareholdings in the EBRD (capital subscribed in € mil.) .....128 Annex H. Constituencies on the Board of the EBRD ................................130 Annex I. Extracts from the Lisbon Treaty ..................................................131 Annex J. The Common Visa Application Centre in Moldova .................135 Annex K. Statement by the E3+3 with the support of the EU High Representative following the adoption, 9 June 2010, of UN Security Council Resolution 1929 on the Iranian nuclear programme ..........136 Annex L. Draft Resolution A/64/L67 of the UN General Assembly – Participation of the European Union in the work of the UN ..........137 Annex M. UN General Assembly Voting on Motion to Adjourn the Debate on Participation of the EU in the UN, 13 September 2010 ..139 Annex N. Staffing in the Foreign Services of the EU and the MS ..........141 Annex O. Budget Expenditure on Diplomacy of the EU and Member States a .....................................................................................................142 Annex P. Aid (ODA) Expenditures of the EU and Member States and Administering Departments ................................................................143 List of Boxes Box 1. Lisbon Treaty – objectives of the EU’s external policy (TEU, Article 21) ........................................................................................... 17 Box 2. Lisbon Treaty – legal competences in external affairs ........................ 29 Box 3. Treaty texts referring to the EU as a Regional Economic Integration Organisation (REIO) or Regional Integration Organisation (RIO). ................................................................. 33 Box 4. G-20 Communiqué of Finance Ministers and Central