A view from the policy community: a new strategic narrative for Europe?

ABSTRACT

Reflecting on the results presented in articles in this special issue, European leaders should take greater account of external perceptions in crafting the European Union's strategic narrative and guiding its actions. Failure to do so has impaired external policies like the Euro-Mediterranean Partnership, the European Neighbourhood Policy and Eastern Partnership. Leaders emerging from the Arab uprisings perceived the EU as complicit with their countries’ former anciens régimes and Russian leaders see EU support for democracy and the market economy in former Soviet states as duplicitous and instrusive. Awareness of such perceptions should be filtered into EU decision-making, without validating views that European officials and diplomats consider misleading.     

Making sense of the EU’s response to the Arab uprisings: foreign policy practice at times of crisis

ABSTRACT

The Arab uprisings of 2011 put into question previously held understandings about the stability of authoritarian regimes in North Africa as well as the European Union’s (EU’s) relations with countries in its southern neighbourhood. Despite early calls on behalf of the EU to change its policies, the Union’s responses in the early stages seemed mostly characterised by continuity. This article claims that certain dispositions and background knowledge developed over several decades vis-à-vis EU’s Mediterranean policies served as a baseline from which EU officials and diplomats acted. Drawing on insights from practice approaches, the article argues that the practical understandings on what the EU can (and cannot) do vis-à-vis partner countries in North Africa create a kind of power politics of practical dispositions. The article focuses on the European Neighbourhood Policy - the EU’s flagship initiative - and builds on a unique set of data that combine policy documents and interviews with about 30 EU officials and national diplomats from before and after the Arab uprisings. In this way, it illustrates how practice relates to change in that even though the EU’s responses drew on an established repertoire of practice, enacting it in a new context opened up new possibilities for action.     

Rashomon in Jerusalem: Mapping the Israeli Negotiators' Positions on the Israeli–Palestinian Peace Process, 1993–2001

To understand the complexities and dilemmas of the Israeli–Palestinian conflict this paper maps the divergent Israeli positions along the route of the "Oslo" peace process of 1993–2001, including the negotiations at Camp David (July 2000), and Taba (January 2001). This paper is based upon a qualitative content analysis of 20 in-depth interviews conducted in 2002 and 2003 at the Leonard Davis Institute for International Relations at the Hebrew University of Jerusalem with a broad range of Israeli negotiators, including senior politicians, foreign ministry officials, senior military officers, former members of the security services, and political aides. This paper tackles the question of how Israelis who were directly involved in the peace process now evaluate it, offering a portrait of how sharply at odds were the various perceptions of what happened and who was responsible for the ultimate failure.     

American military presence in Europe

Despite the efforts put into negotiations, they have created a self-perpetuating cycle of disappointment, frustration and empty dialogue. With contradictory Palestinian and Israeli agendas – Palestinians negotiating for an independent state, an end to occupation, etc., and Israel negotiating primarily over security concerns – one must question the reason behind prolonged negotiations. Is US mediation, accused by many of extreme bias towards Israel, to blame? Or are negotiations an Israeli objective to execute a particular political agenda? In spite of the international community's recognition of establishing an independent Palestinian state, the current reality on the ground undermines any creation of one. This reality was allowed only by the strategic prolonging of negotiations. A particular focus on the proceedings following the Oslo Accords explains how Palestinian--Israeli negotiations have been used to pursue a specific objective.     

Cyber insecurity as a national threat: overreaction from Germany,France and the UK?

Abstract

This article analyses the development of the European Union (EU) as a global actor in the area of climate security. Building on this, it explicitly draws on constructivist concepts such as norm entrepreneurship and epistemic communities. To this end, it adopts the framework of epistemic communities, as developed by Peter Haas, in order to suggest that there is a group of EU officials, EU member states and think-tank activists, who drive the climate security agenda of the EU. Thus, it examines the precise actors involved in this EU epistemic community for climate security. This group promotes a reason for action at the global level, resulting in the attempt to diffuse this norm: climate change has consequences for international security; thus, it requires the development of appropriate policies and capabilities within the EU and globally. This article suggests that the epistemic community on climate security has been effective at diffusing this norm at both levels, albeit with differences.     

EU Actorness in the International Labour Organization: Comparing Declaratory and Voting Cohesion

This article presents data on the voting records of the European Union (EU) Member States and the frequency of EU common statements in both technical (standard-setting) and political (scrutiny) issues in the International Labour Organization (ILO) between 1973 and 2007. By contrasting voting cohesion to declaratory cohesion, it advances the literature by demonstrating that contrary to theoretically informed predictions, political coordination is more successful than technical coordination. It explores the reasons for this through an analysis of different forms of actorness, namely the opportunity to act within the ILO, the presence of the EU through its Member States, and the capability of the policy-making apparatus to produce cohesive outputs. It concludes that the socialisation of Geneva-based diplomats is the most important variable explaining the relative success of political coordination, while the unfamiliarity of seconded national officials to Geneva with EU coordination explains the reduced effectiveness of technical cooperation.     

The EU and the Global Order: Contingent Liberalism

Abstract

Politicians, diplomats and analysts commonly assume that commitment to multilateralism and liberal norms is part of the EU’s very DNA. Increasingly, however, the EU’s commitment to the liberal global order is more selective. We demonstrate the shift to a more contingent liberalism by examining the EU’s recent record in relation to four different challenges: international trade; US leadership; Russian actions in the eastern neighbourhood; and security in the Middle East. We speculate on what this may portend for the EU’s self-identity, European interests and the integrity of the prevailing global order.     

The Emergence of Citizen Diplomacy in European Union–China Relations: Principles,Pillars, Pioneers,Paradoxes

This analysis considers the phenomenon of citizen diplomacy in European Union [EU]–China relations. It begins by engaging with the global discourse about “new” diplomacy and outlines how society-centric citizen diplomacy differs from state-centric public diplomacy. After revealing that European policy-makers are only reluctantly acknowledging the role of laymen in foreign policy-making vis-à-vis China, it shows that whilst citizen diplomacy may be a new concept in EU–China relations, it is actually not a new practice. The empirical part of the exegesis traces the experiential learning amongst 12 European citizen diplomats who have engaged China in the activity fields of disability; psychoanalysis; non-governmental organisation twinning; human rights; climate change mitigation; welfare of orphans, abandoned disabled children and young people; youth dialogue; public participation; animal welfare; and inclusive performing arts. The final part makes use of the newly developed hexagon of intercultural communication and collaboration competence to reveal how the European citizen diplomats have managed to navigate the sometimes-treacherous political-administrative landscape in mainland China. European citizen diplomats have made manifold and often surprising contributions to China’s multifaceted development.     

Canada,the Palestinian Liberation Organisation (PLO) and the flexibility of terror identities

ABSTRACT

Security governance practices are contingent on the imagination of future threats. The “war on terror” has produced a very narrow imagination of threats, almost singularly focused on suspect communities that are Arab, Muslim, or perceived to be Middle Eastern. Discussing how immigration practices in Canada have been influenced by counter-terrorism trends, we argue that “terror identities” are mutable and highly racialised imaginaries that cast indelible marks of suspicion on subjects who are deemed as security threats. Examining the case of a journalist deemed inadmissible to Canada because of her “membership” in the Palestinian Liberation Organisation (PLO), we argue that terror identities impose authoritative control over the status and lived experiences of individuals who are cast through these racialised labelling practices. Focussing on the shifting characterisation of the PLO by Canadian officials as both political interlocutor and terrorist organisation, our purpose is to highlight how racialised imaginations of terror identities enact punitive and discriminatory practices.     

Transgovernmental networks and rationalist outputs? The partial social construction of EU foreign policy

ABSTRACT

The European Union (EU) foreign policy has gone beyond intergovernmentalism. It is largely formulated by (Brussels-based) national officials, in a process characterised by a high number of cooperative practices, diffuse sentiments of group loyalty and possibly argumentative procedures. Yet, in many cases, the most likely output of this process reflects the lowest common denominator of states’ positions or the preferences of the biggest states. The article intends to investigate this puzzle. In the first part, it corroborates its existence by using answers from an original database of 138 questionnaires and 37 interviews with EU negotiators. Next, it argues that cooperative practices remain often subordinated to nationally oriented ways of doing things. Consequentialist practices perform an anchoring function, in that they define the parameters around which (social) practices operate. The last section looks more closely at the sites of and meanings attached to EU foreign policy-making. By discussing national diplomats’ conspicuous leeway in Brussels, it also argues that negotiating practices are performed through a mix of partial agency and persistence of national dispositions. On the whole, changing practices is difficult, even in dense and largely autonomous settings such as EU foreign policy. The social construction of EU foreign policy occurs only to a partial extent.     

How Many Europes? Fragmentation in the European Space since the Great Recession

ABSTRACT

Since the Great Recession started in the late 2000s, the European Union (EU) has experienced an acute crisis that has triggered internal divisions among EU members. Three factors can help shed light on this tendency towards political fragmentation: economics and finance, culture, and territory. Each of these reveals a specific ‘geography’, in terms of policies and narratives, of the current malaise regarding the EU project and the limits of the Union in addressing issues important for the domestic debates of its members. Such discontent, as well as anti-EU sentiment, fuels strong political reactions including populism and anti-elitism that could further fragment the EU in the future.     

“These People Have an Irrevocable Right to Self-Government”: United States Policy and the Palestinian Question, 1977–1979

Upon entering office, Carter Administration officials placed a heavy emphasis on integrating human rights into United States foreign policy. They also sought to contain festering Arab–Israeli tensions in the Middle East. The intersection of these two issues was the Israeli–Palestinian conflict. This article examines the Administration's attempts to solve that conflict and to bring peace to the region. It argues that policymakers developed a sincere dedication to safeguarding Palestinian rights, but that their understanding of those rights was limited in scope and defined through the lens of United States security and strategic interests. In spite of a good-faith effort to satisfy Palestinian desires while maintaining a constructive relationship with Israel, the Administration ultimately failed to alter the status quo because of regional developments. As Washington's strategic thinking changed, so did the urgency of Palestinian rights.     

Human Rights Dilemmas in Using Informers to Combat Terrorism: The Israeli-Palestinian Case

ABSTRACT

Using informers is a basic tool in preventing terror attacks and the nature of current terror threats makes it even more crucial. This use, however, often leads to human rights violations, both of the informers and by them, and to many problematic ethical questions. Drawing on the Israeli–Palestinian example—where a main strategy of Israeli intelligence activity in the Palestinian areas has been an extensive use of informers—this article presents the main human rights dilemmas in the field, divided into three stages: recruitment, operation and post-operation obligations, and also points to the possible counter-productive consequences of such a use.     

Asian perceptions about the EU in the Asia�CEurope Meeting (ASEM)

The inauguration of the Asia–Europe Meeting (ASEM) in Bangkok in March 1996 has created enthusiasm and hopes for closer inter-regional relations between Asia and Europe. This article observes how behaviors of European countries representatives in the ASEM process have significantly shaped the perceptions of Asian officials and people about the EU and European intentions to develop mutually beneficial relations with Asia. It employs a constructivist framework in which the ASEM process is treated as a dynamic social setting for not only Asia–Europe inter-regional interactions but also intra-Asia socialization. Methodologically, it is a qualitative research with an inductive process and interpretive method. The research uses qualitative data, gathered from various sources and 82 in-depth interviews with diplomats, scholars, journalists, business peoples and civil society representatives in five Asian countries. This study finds that some behaviors of EU participants at ASEM or ASEF interregional forums are counterproductive for EU efforts to develop robust relations with Asian countries. The polarization between Asian and European groups in the ASEM or ASEF meetings, caused by political issues and colonial memory, contributed to the difficulties in trust-building between Asian and European participants. In addition, by their frequent absence from ASEM Summits, EU leaders squandered rare opportunities for a ‘meeting of minds and hearts’ with their Asian counterparts. This process seems to be a precondition for Asians to develop tangible cooperation.     

European security as practice: EU–NATO communities of practice in the making?

ABSTRACT

European security is at a critical juncture and many have called for a more coherent and efficient response, involving both the EU and NATO. However, the primary tool for EU–NATO cooperation, “Berlin Plus”, has been stuck in a political quagmire since the mid-2000s, making a lot of scholars to conclude that this cooperation is obsolete and outdated. This article is challenging this view by analysing a range of informal but regular interaction patterns that have emerged. Using practice theory, it sheds new light on and explores how EU and NATO staff at all levels engage in informal practices on various sites in headquarters in Brussels and in field operations. A study of EU–NATO cooperation as practice focuses on the everyday, patterned production of security as well as what makes action possible, such as (tacit) practical knowledge and shared “background” knowledge (education, training, and experience). The article also discusses the extent to which shared repertoires of practice may evolve into loose communities of practice that cut across organisational and professional boundaries.     

Oslo and Its Aftermath: Lessons Learned from Track Two Diplomacy

Since the collapse of the Oslo peace process and the violence that followed, many scholars have reflected upon the Israeli–Palestinian peace process. Most of this analysis has focused on official negotiations without considering the substantial role that unofficial peace efforts have played in peacebuilding, both prior to and after Oslo. This article, in contrast, seeks to better understand the application of “track two” diplomacy to the Israeli–Palestinian case. It reports on a self‐reflection effort by numerous Israeli–Palestinian peace practitioners to better understand what has worked, what has not, and how new initiatives could be more effectively organized and carried out in the future. The research presented is based on an inventory of seventy‐nine track two projects that occurred between Israelis and Palestinians between 1992 and 2004, personal interviews with many of those who organized and oversaw these projects, and two focus group meetings that brought together a total of forty practitioners. In this article, we seek to better understand two issues: (1) how track two initiatives have changed in scope, organization, and intent; and (2) how track two practitioners have sought to disseminate their work beyond the participants of those initiatives. Our findings present an overall picture of the Israeli–Palestinian second track practice and identify a number of trends and common types of practice. Among the trends we have identified are the following: during the peace process years, more track two initiatives were undertaken with elite/professional participants than with representatives of the grassroots, but in the subsequent decade‐and‐a‐half, Israeli–Palestinian grassroots, track two initiatives gradually replaced senior‐level track two exchanges; most of the grassroots initiatives we studied were relationship focused, whereas those involving elite participants are outcome focused; the track two community subscribes to a set of theoretical propositions about which conditions and contexts facilitate the transmission of track two insights and ideas to the political process, but these propositions have yet to be validated; and track two specialists do little strategic planning about ways to most effectively transfer track two insights and ideas to the political process. Our research also identified four distinct, but not mutually exclusive, approaches to practice: the psychological, the constructivist, the capacity building, and the realistic interest.     

The influence of EU officials in European Security and Defence

Abstract

European Union (EU) foreign policy has long been considered the domaine réservé of the member states. This article challenges such conventional state-centered wisdom by analyzing the influence of the Brussels-based EU officials in the Common Security and Defence Policy. Using four case studies and data from 105 semi-structured interviews, it shows that EU officials are most influential in the agenda-setting phase and more influential in civilian than in military operations. Their prominence in agenda-setting can be explained by their central position in the policy process. This allows them to get early involved in the operations. The absence of strong control mechanisms and doctrine in civilian crisis management gives them opportunities to affect civilian missions. Finally, EU officials direct civilian operations from Brussels, whereas the command of military operations is with the member states and NATO.     

Networked Cooperation: How the European Union Mobilizes Peacekeeping Forces to Project Power Abroad

Abstract

How does the European Union (EU) recruit troops and police to serve in EU peacekeeping missions? This article suggests that pivotal EU member states and EU officials make strategic use of the social and institutional networks within which they are embedded to bargain reluctant states into providing these forces. These networks offer information on deployment preferences, facilitate side-payments and issue-linkages, and provide for credible commitments. EU operations are consequently not necessarily dependent on intra-EU preference convergence—as is often suggested in the existing literature. Rather, EU force recruitment hinges on highly proactive EU actors, which use social and institutional ties to negotiate fellow states into serving in an EU missions.     

Unintended Consequences of EU Democracy Support in the European Neighbourhood

ABSTRACT

The European Union’s (EU) impact on the political governance of the European neighbourhood is varied and sometimes opposite to the declared objectives of its democracy support policies. The democracy promotion literature has to a large extent neglected the unintended consequences of EU democracy support in Eastern Europe and the Middle East and North Africa. The EU has left multiple imprints on the political trajectories of the countries in the neighbourhood and yet the dominant explanation, highlighting the EU’s security and economic interests in the two regions,cannot fully account for the unintended consequences of its policies. The literature on the ‘pathologies’ of international organisations offers an explanation, emphasizing the failures of the EU bureaucracy to anticipate, prevent or reverse the undesired effects of its democracy support in the neighbourhood.