The High Representative and directoires in European foreign policy: the case of the nuclear negotiations with Iran

ABSTRACT

The negotiations with Iran about its nuclear programme have seen the most protracted involvement of the High Representatives of the European Union in a high-profile policy case. This article traces the evolution of the High Representatives’ participation in the negotiations, from the first contacts with the E3 (Germany, France and the United Kingdom) in 2003 to the adoption of the Joint Comprehensive Plan of Action in 2015. It focuses on the institutional role the High Representatives played in relation with the directoires leading the talks with Iran – first the E3 and, since 2006, E3/EU. In this context, it examines the personal and organisational factors that affected the influence each of the three High Representatives (Javier Solana, Catherine Ashton and Federica Mogherini) had in regard to the directoires. The analysis distinguishes specifically between the phases before and after the 2009 Lisbon Treaty. The article shows how similar personal qualities of the three High Representatives in terms of problem-solving and trust-building gave them political capital that enabled them to adopt a fairly constant role as bridge-builders within the directoires and between the directoires and other actors. The reforms of the Lisbon Treaty had only a minor impact.