The EU as a Foreign Policy Actor

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Essay

The EU as a Foreign Policy Actor

Professor Dieter Mahncke

Student Overo Y.

College of Europe, Bruge

To begin with, the process of integration on European continent began more than fifty years ago and today European Union (EU) - its main creature, which does not have analogue in the world, developed tremendously and made unprecedented progress. Today the EU ensures prosperity, stability and peace, high living standards and social protection for its 500 million population. J. Fischer, `Europe's Two Futures', Project Syndicate, 2007, retrieved 31 October 2007, available under http://www.project-syndicate.org/commentary/fischer14 Its 27 Member Sates account for quarter of world's Gross National Product European Council, `A Secure Europe in a Better World - The European Security Strategy', 12 December 2003, p.1., which makes EU strong economic block. Moreover, the EU is the biggest provider of development aid to the third countries. All these facts explicitly demonstrate that European Union today is a global actor.

Questions about future of the EU common foreign policy are highly debated nowadays among political leaders, scholars and even citizens. Whether member states should give up partially their national interests for sake of common `European voice'? Why does EU need common foreign policy? What has the EU achieved so far and what weaknesses have been found? Are further improvements realistic? These are the questions that I aim to answer in my essay.

To start with, I believe it is essential for the Union to have common foreign policy and there are several underlying reasons for that.

First of all, constantly changing security environment, emergence of new global threats and challenges require unified Union's position, policy and adequate actions to tackle them. Without doubt such major threats as terrorism, proliferation of WMD, global warming, mal gouvernement, poverty can not be solved by means of one country. Ibid., p.1-5. These threats have global scale and hence should be of concern for every single government and person of the planet. Only through global co-operation and action these threats can be addressed. In my view the European Union should play decisive role in countering global threats, be `locomotive' promoting global consciousness and awareness about threats and challenges. Therefore, I think it is pivotal for the European Union to have a joint policy which makes Union's voice strong on international arena.

Secondly, changing world order demands the European Union to `grow' from global actor to global power. Since the end of `Cold War' the Unites States remains major global power which sets `agenda' and pace of development for the world. War in Iraq, withdrawal from Kyoto protocol, opposition to creation of International Criminal Court is some of examples, which illustrate the US approach to international problems. By 2020 world order will be contested by new global players as China and India. And what about role of the European Union?! I find it relevant to quote here Joschka Fischer who said `The world outside Europe is changing rapidly, and it won't wait for Europeans mired in an agonizing process of self-discovery. The alternatives are clear: keep up or be left behind. Fischer, op.cit. The world needs strong and empowered Union. And therefore in connection to this, it is vital for functioning of the EU to adopt and ratify new Treaty of Lisbon. Changes which concern exercise of Common Foreign and Security Policy (CFSP) are crucial and will enable Union to have more coherent, unified, capable foreign policy.

Thirdly, I would like to note that there is global public demand for non-military global power. According to latest survey results, based on the interviews of 57000 people from 52 countries conducted by the European Council on Foreign Relations and Gallup International, the world clearly demonstrates hostile attitude towards military power and shows support to `herbivorous' powers. Ivan Krastev & Mark Leonard, `The rise of `herbivorous powers'?', European Council on Foreign Relations, 2007, retrieved 31 October 2007, available under http://www.ecfr.eu/content/entry/commentary_gallup_poll_results/. It is indicative, that to the question `Who is most desired as key to the development of a better world?' among major powers the EU gained majority of public support with 35%. Ibid.

Therefore, as I have shown the EU faces a challenge to become global non-military power and take global responsibility for development of the world. For these reasons, the EU shall have common foreign policy.

After argumentation why we need common foreign policy for EU, I would like to proceed to examination of its main achievements and weaknesses.

I think, greatest accomplishment of the EU is creation of legal basis, `pillarization' of CFSP. Maastricht Treaty and subsequent amendments to it established institutional mechanism for CFSP implementation, which enables combination of `supranational' EU interests with national ones (CFSP remains largely intergovernmental). Scope of CFSP areas is constantly expanding.Amsterdam Treaty (1999) extended areas of CFSP `competence' to security domain, namely to implement humanitarian and rescue operations, peace-keeping operations, tasks for combat forces in crisis management, including peacemaking (Petersberg tasks). With Nice Treaty (2000) CFSP expanded to cover defence sphere in framework of European Security and Defence Policy (ESDP). With new emerging threats, European Security Strategy (2003) addressed problem of fight against terror. It demonstrates importance of foreign and defence policy for development of the EU.

There are explicit examples which prove effectiveness of CFSP. From my point of view, the most vivid example when CFSP potential was fully in use and bore fruits is the case of the EU's policy towards Eastern Europe. After fall of the Soviet Block the EU faced formidable task to foster economic, social, societal transition of Eastern countries and fully integrate them into the Union. Taking into consideration whole complexity of tasks and quantity of states involved in integration process, EU CFSP machinery worked as an `orchestra'. In order to avoid appearance of new dividing lines in Europe, the EU launched comprehensive European Neighborhood Policy that encompasses 16 states and helps transformation process in those countries.

As Ukrainian citizen I find it appropriate to mention that owing to EU's single and firm position in relation to internal developments during the Orange Revolution in Ukraine, it `compelled' national authorities to negotiate and find solution from deadlock, prevented outbreak of violence against peaceful manifestations and in the end led to the victory of democracy.

Notably, the EU took leading position and made significant contribution to resolution of international-scale subjects as establishment of International Criminal Court, signing of Kyoto Protocol, launching of peace-keeping mission in Balkans and Democratic Republic of Congo.

At the same time, European foreign policy failed to be efficient in so critical moments as during Yugoslavia war, attempts to reach common position on invasion of Iraq and stop Iranian nuclear program. These failures reflect internal problems of CFSP `kitchen'.

Experts, identify large number of factors which impede CFSP. I will enumerate key of them. First, ineffective decision-making procedure by consensus. It is hard to imagine that 27 Member States (each with its own historical, cultural background, economic and political interests) can agree on every particular topic related to foreign policy of the EU and rapidly. Even when a very important issue is on table, no guarantees that decision will be adopted and one country wont use its veto power. Secondly, lack of strategic approach to foreign policy. I think it is relevant to quote Charles Grant and Mark Leonard who said that `too often the EU's foreign policy is about managing crises, rather than preventing them or combining its many assets in the pursuit of precise objectives'. Charles Grant & Mark Leonard, Policy brief `How to strengthen EU foreign policy', Center for European Reform, p.2., 2006, retrieved 30 October 2007, available under www.cer.org.uk/pdf/policybrief_cfsp_3july06.pdf. Thirdly, there is no `single voice' which speaks for EU foreign affairs. Overcoming of these weaknesses will help EU to have more effective, operative foreign policy.

In light of the above it is problematic to foresee drastic changes in implementation of CFSP. However, I believe that further improvements are realistic. Primarily basis for further transformation of CFSP lays the Treaty of Lisbon known as `The Reform Treaty'. As the President of the European Commission Jose Manuel Barroso said `with the reform Treaty Europe will be stronger to assume its role in the world and to solve the economic problems of its citizens'. `European leaders approve Treaty of Lisbon', retrieved 4 November 2007, available under http://www.eu2007.pt/UE/vEN/Noticias_Documentos/20071019soc.htm. According to the Treaty, CFSP implementation awaits following changes: election of Council Presidency for 2.5 years period (instead of rotation system for 6 months), establishment of post of the High Representative of the Union for Foreign Affairs and Security Policy. The latter will merge functions of chairman of the General Affairs and External Relations Council and of a Vice-President of the European Commission. He will represent and embody Union's Foreign Policy in relations with the 3rd parties and noteworthy that in his work he will be assisted by newly established European External Action Service (EEAS). Articles 9e and 13a TEU, retrieved 28 October 2007, available under http://intranet.coleurop.be/ird/programme/CompulsoryCourses/Wouters/Resources/Extracts%20of%20ReformTreaty(TEU).pdf All these changes will help to make EU Foreign Policy more coherent, unified and strategic; more recognizable in eyes of partners.

Also the Treaty envisaged new voting procedure - qualified majority voting (QMV) - which will enable to prevent situation of blockage. Thus, decision considers to be adopted if 55% of Member States votes and it includes not less than 65% of the EU population. Volodumur Poselskiy, `Renewed treaties or bad-constitution', Mirror of the Week, Vol.40 (669), 27 October- 2 November 2007, retrieved 4 November 2007, http://www.zn.ua/1000/1600/60914/. QMV gives a hope that decisions in the Council will be adopted on a much wider scope of issues.

I think it shows (I dare to presume) that European elites due to stemming global threats and acknowledgment of their responsibility, recognized urgent necessity for efficient realization of foreign policy for the future of the EU. As Angela Merkel pointed in her interview: `The world became more open and unpredictable. In epoch of globalization Europe shall jointly protect its way of living. […] It can be achieved through serried position with regard to external world - in questions of global economy as well is in case of internal security protection through countering terrorism or climate change'.Angela Merkel interview for Rheinische Post, `In epoch of globalization Europe shall jointly protect its way of living', New Europe, 2007, retrieved 4 November 2007, available under http://n-europe.eu/content/index.php?p=1940 in Russian, http://www.bundeskanzlerin.de/nn_5300/Content/DE/Interview/2007/03/2007-03-21-interview-merkel-rheinische-post.html (in German).

As well I think further impact on shaping CFSP's role will make public opinion. According to Eurobarometer surveys, European citizens would like to see decisions to be made jointly within the EU rather solely by home-countries in following areas: terrorism - 81%, environment - 69%, defence and foreign affairs - 62%. The current Standard Eurobarometer was carried out between April 10th and May 15th 2007.

Eurobarometer 67 public opinion in the European Union, Eurobarometer, 2007, retrieved 4 November 2007, available under http://ec.europa.eu/public_opinion/archives/eb/eb67/eb_67_first_en.pdf. We can see that public support of CFSP/ESDP is pervasive. In my view foreign policy orientations will play decisive role in elections to the European Parliament in 2009. Therefore, foreign policy of the EU will be influenced through instrument of direct democracy.

However the main obstacle to development of really common foreign policy will remain national interests of Member States (clash of domestic lobbying groups with common foreign EU policy). For instance, how Germany can take more hard position in relation to Russia while German business in Russia depends on Russia's loyalty? As we can see `freedom is not free', but common foreign policy which can make the European Union a global power definitely worthy.

In conclusion, as I have shown European Foreign policy is work in progress and global trends indicate necessity of `soft' power to take a lead in international arena. Will the European Union and its leaders be ready to make further step to empowering Union? It is an open question and very soon time will show. However I want to believe that the Treaty of Lisbon is a next step to make the European Union more functional and strong.

integration european policy

Sources sited or consulted

Official documents

Draft Treaty amending the Treaty on European Union and the Treaty Establishing the European Community ('Reform Treaty' / Lisbon Treaty), retrieved 28 October 2007, available under

http://www.consilium.europa.eu/cms3_fo/showPage.asp?id=1317&lang=en&mode=g

European Council, `A Secure Europe in a Better World - The European Security Strategy', 12 December 2003.

European Commission, Directorate-General for Communication, The EU in the world. The foreign policy of the European Union, 2007, retrieved 4 November 2007, available under http://ec.europa.eu/publications/booklets/move/67/en.doc

Academic books and articles

Ahtisaari, Martti, Joschka Fischer, Mabel van Oranje & Mark Leonard, `Empowering Europe', Project Syndicate, 2007, retrieved 31 October 2007, available under http://www.project-syndicate.org/commentary/ahtisaari4.

Cameron, Fraser, An introduction to European foreign policy, London, Routledge, 2007.

Cameron, Fraser, EU Strategic Concept, Europen Policy Centre, Issue Paper No.4, 2003, retrieved 31 October 2007, available under

http://www.epc.eu/en/pub.asp?TYP=TEWN&LV=187&see=y&t=13&PG=TEWN/EN/detailpub&l=12&AI=193.

Cameron, Fraser, The foreign and security policy of the European Union: past, present and future, Sheffield: Sheffield Academic Press, 1999.

Carlsnaes, Walter & Steve Smith, European foreign policy: the EC and changing perspectives in Europe, London, Sage, 1994.

Carlsnaes, Walter, Helene Sjursen & Brian White, Contemporary European foreign policy, London, Sage, 2004.

Fischer, Joschka, `Europe's Two Futures', Project Syndicate, 2007, retrieved 31 October 2007, available under http://www.project-syndicate.org/commentary/fischer14.

Grant, Charles & Mark Leonard, Policy brief `How to strengthen EU foreign policy', Center for European Reform (CER), 2006, retrieved 30 October 2007, available under www.cer.org.uk/pdf/policybrief_cfsp_3july06.pdf.

Krastev, Ivan & Mark Leonard, `The rise of `herbivorous powers'?', 2007, European Council on Foreign Relations (ECFR), retrieved 31 October 2007, available under http://www.ecfr.eu/content/entry/commentary_gallup_poll_results/.

Mahncke, Dieter, `The Need for a Common Foreign Policy', in Dieter Mahncke, Alicia Ambos & Christopher Reynolds (eds.), European Foreign Policy: From Rhetoric to Reality?, Brussels, PIE-Peter Lang, 2004.

Poselskiy, Volodumur, `Renewed treaties or bad-constitution', Mirror of the Week, Vol.40 (669), 27 October - 2 November2007, retrieved 4 November 2007, available under http://www.zn.ua/1000/1600/60914/.

Smith, Karen E., Assessing the impact of the Iraq war on EU foreign policy: radical change or business as usual?, CFSP Forum, vol. 2, no. 5, 2004, retrieved 4 November 2007, available under www.fornet.info/documents/Index%20to%20CFSP%20Forum.doc.

Smith, Karen E., The making of EU foreign policy. The case of Eastern Europe, Houndmills, Palgrave, 2004, 2nd edn.

Internet resources

1. Eurobarometer 67 public opinion in the European Union, Eurobarometer, 2007, retrieved 4 November 2007, available under http://ec.europa.eu/public_opinion/archives/eb/eb67/eb_67_first_en.pdf.

2. European leaders approve Treaty of Lisbon', retrieved 4 November 2007, available under http://www.eu2007.pt/UE/vEN/Noticias_Documentos/20071019soc.htm.

3. Merkel, Angela interview for Rheinische Post, `In epoch of globalization Europe shall jointly protect its way of living', New Europe, 2007, retrieved 4 November 2007, available under http://n-europe.eu/content/index.php?p=1940 in Russian, http://www.bundeskanzlerin.de/nn_5300/Content/DE/Interview/2007/03/2007-03-21-interview-merkel-rheinische-post.html (in German).

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