The Revised European Neighbourhood Policy

Transcription

1 The Revised European Neighbourhood Policy

2 At a moment when the EU is once again reviewing its signature European Neighbourhood Policy, this book is instructive in assessing the last revision to this strategy in Bouris and Schumacher have assembled an interestingly eclectic mix of contributions, many of which offer useful perspectives somewhat different from standard accounts of EU foreign policy. The volume sheds light on why the promised ENP upgrade went awry and failed to divert the crises with which the EU now grapples to its east and south. Richard Youngs, Professor of International Relations, University of Warwick, UK This expansive set of chapters clarifies the urgency and complexity involved in the EU s revised policy for engagement with the Union s southern and eastern neighborhoods. Conceptually sophisticated and empirically rich, the book tackles the ontological ambivalence, normative tensions, and operational challenges in the EU s Revised ENP, leaving no doubt about the inextricable, reflexive linkages between the future of the EU and developments in countries to the south and east. Elizabeth H. Prodromou, Visiting Associate Professor of Conflict Resolution, The Fletcher School of Law and Diplomacy, USA Dimitris Bouris and Tobias Schumacher s book will become an indispensable read in the study of the ENP. It provides a major new critical synthesis of the Union s relations with its immediate neighbours in the framework of the revised ENP of This is a must-read for anyone who wants to understand the ENP s subsequent reviews and thus the EU s evolving foreign policy towards its near abroad. Sharon Pardo, Jean Monnet Chair ad personam Ben-Gurion University of the Negev, Israel The neighbourhood is crucial to the future of the EU, in terms of not only security, but also and especially governance, sustainable development and social equality. The authors in this volume draw on their unique expertise to unpack the key issues and highlight what has changed and what needs changing in the European stance. Federica Bicchi, Associate Professor in International Relations of Europe, The London School of Economics and Political Science, UK

3 Dimitris Bouris Tobias Schumacher Editors The Revised European Neighbourhood Policy Continuity and Change in EU Foreign Policy

4 Editors Dimitris Bouris Department of Political Science University of Amsterdam Amsterdam, The Netherlands Tobias Schumacher European Neighbourhood Policy Chair College of Europe (Natolin) Warsaw, Poland ISBN ISBN (ebook) DOI / Library of Congress Control Number: The Editor(s) (if applicable) and The Author(s) 2017 The author(s) has/have asserted their right(s) to be identified as the author(s) of this work in accordance with the Copyright, Designs and Patents Act This work is subject to copyright. All rights are solely and exclusively licensed by the Publisher, whether the whole or part of the material is concerned, specifically the rights of translation, reprinting, reuse of illustrations, recitation, broadcasting, reproduction on microfilms or in any other physical way, and transmission or information storage and retrieval, electronic adaptation, computer software, or by similar or dissimilar methodology now known or hereafter developed. The use of general descriptive names, registered names,, trademarks, service marks, etc. in this publication does not imply, even in the absence of a specific statement, that such names are exempt from the relevant protective laws and regulations and therefore free for general use The publisher, the authors and the editors are safe to assume that the advice and information in this book are believed to be true and accurate at the date of publication. Neither the publisher nor the authors or the editors give a warranty, express or implied, with respect to the material contained herein or for any errors or omissions that may have been made. Cover image Mikael Damkier / Alamy Stock Photo Printed on acid-free paper This Palgrave Macmillan imprint is published by Springer Nature The registered company is Macmillan Publishers Ltd. London

5 Acknowledgements We are grateful and indebted to several people for their invaluable contribution to this volume. First of all, we would like to thank the authors, not only for their contributions but also for having been patient and for having replied to our numerous messages and for addressing all of our comments throughout the process of turning individual drafts into one manuscript. Editing can be quite a laborious task and sometimes, so they say, even challenge long-established relations with colleagues and friends as a result of the many critical and seemingly endless demands of the editors. Fortunately, our experience was different as our contributors did not mind our repeated queries and requests for revisions and updates, thus turning this process into a truly memorable experience. Also, we would like to thank Palgrave Macmillan for believing in this project and for their valuable input. This volume grows out of several PhD Summer Schools that have been organised annually by the ENP Chair of the College of Europe, Natolin campus (Warsaw) throughout the last years and that have been devoted to the study of the multi-faceted dimensions of the ENP original and revised. We thank sincerely all colleagues some represented in this volume who have volunteered to come to the Natolin campus of the College of Europe and offered inspiring talks and lectures to the many PhD students who participated in the various editions of the school. Equally, several institutions and consortia have collaborated and contributed to its success. We are grateful for the institutional and financial support, generously provided by the College of Europe, Natolin campus (Warsaw), the Konrad Adenauer Stiftung (Israel Office), and the Centre for the Study of European Politics v

6 vi Acknowledgements and Society at the Ben-Gurion University of the Negev. The European Consortium for Political Research (ECPR), the ECPR Standing Group on the European Union (ECPR-SGEU), the Lisboan Erasmus Academic Network, and the Trans European Policy Studies Association (TEPSA) have been enthusiastically supporting the initial idea back in of setting up an annual PhD summer school, then dedicated more generally to the EU s role in the world, and provided crucial seed funding. Also, after the school has travelled to the Natolin campus of the College of Europe and shifted its focus on to the study of the ENP and the EU s neighbourhoods, they have remained committed partners ever since and we are indebted to them. Many thanks go also to the research project BORDERLANDS: Boundaries, Governance, and Power in the European Union s Relations with North Africa and the Middle East at the European University Institute, Robert Schuman Centre for Advanced Studies, and to the Konrad Adenauer Stiftung (Palestinian Territories Office). Finally, we are also thankful to Maja Olszewska for her professional and cheerful assistance and her important contribution to the works of the ENP Chair. The Vice-Rector of the College of Europe, Natolin campus (Warsaw), Ms. Ewa Ośniecka-Tamecka, deserves particular mention for her relentless support of the ENP Chair, its many activities and thus its annual ENP PhD Summer School, the pedagogical value of which is probably best testified through the generous feedback of its participants. To see that many of them have become aspiring academics and are contributing impressively to the scholarship on EU foreign policy in general and the ENP and the EU s neighbourhoods in particular fills us with joy and pride. We dedicate this volume to them and all participants of past ENP PhD Summer Schools, as well as to future generations of students, hoping that it contributes to advancing their interest in the study of the many intricacies of the EU s ever evolving relationship with its near abroad. Dimitris Bouris and Tobias Schumacher

7 Contents 1 The 2011 Revised European Neighbourhood Policy: Continuity and Change in EU Foreign Policy 1 Tobias Schumacher and Dimitris Bouris Introduction 1 Continuity and Change in Researching the ENP 3 Continuity and Change: Conceptual Considerations 5 One Neighbourhood or Several? 10 Continuity and Change in the Revised ENP 13 Structure of the Volume 19 Notes 26 References 26 Part I The Revised European Neighbourhood Policy: Methodological, Conceptual and Empirical Challenges 35 2 Research Design in the Study of the European Neighbourhood Policy 37 Theofanis Exadaktylos and Kennet Lynggaard Introduction, Motivation and Argument 37 Review of Research Design in ENP 39 Current Challenges to Research Design in ENP Research 46 Addressing Research Challenges in This Volume 48 vii

8 viii Contents Future Agendas and Concluding Remarks 50 References 51 3 Deconstructing the Ideal Power Europe Meta-Narrative in the European Neighbourhood Policy 57 Münevver Cebeci Introduction 57 The EU as a Postmodern/Post-Sovereign Actor and the Revised ENP 58 The EU as Leading by Virtuous Example and the Revised ENP 60 The EU as a Normative Power in the Eastern and Southern Neighbourhood 64 Boundaries, Security and Governmentality in the Revised European Neighbourhood Policy 67 Conclusions 69 Notes 70 References 72 4 The EU s Regional Normative Hegemony Encounters Hard Realities: The Revised European Neighbourhood Policy and the Ring of Fire 77 Hiski Haukkala Introduction 77 The Foundations and Contents of the EU s Normative Hegemony in Europe 79 Enter the Hard Realities 87 Conclusions 89 References 92 Part II Legal and Institutional Aspects of the Revised European Neighbourhood Policy 95 5 Continuity and Change in the Legal Relations Between the EU and Its Neighbours: A Result of Path Dependency and Spill-over Effects 97 Peter Van Elsuwege and Guillaume Van der Loo Introduction 97

9 Contents ix The New Generation of Association Agreements with the Eastern Partnership Countries 99 A New Legal Framework for Economic Integration with the Mediterranean Neighbours 107 The Legal Framework of Sectoral Cooperation with ENP Countries: Spill-over Effects 108 Conclusions 111 Notes 112 References The EEAS and the Revised European Neighbourhood Policy: What Institutional Balance? 117 Hrant Kostanyan Introduction 117 Framing Change or Maintaining Institutional Balance After the EEAS 120 The EEAS and the MS in the Revised ENP 122 The EEAS and the Commission in the Revised ENP 127 Conclusions 130 Notes 131 References The European Parliament and the Revised European Neighbourhood Policy 135 Joanna Kaminska Introduction 135 Old Actors, New Powers? 139 The New Role of Parliamentary Diplomacy: EuroNest and PA-UfM 143 The EP and the European Neighbourhood Instrument 145 The EP and the Cox-Kwasniewski Mission to Ukraine 147 Conclusions 149 Notes 151 References 151 Part III The Revised European Neighbourhood Policy, Conflicts and Crises in the Neighbourhood 155

10 x Contents 8 The Revised European Neighbourhood Policy and Conflicts in the South Caucasus: The EU s Growing Conflict Transformation Role 157 Sabine Freizer Introduction 157 South Caucasus Conflicts and their Intractability 159 Revising EU Policies Towards Conflict and the South Caucasus 163 Continuity and Change in the South Caucasus in Practice 166 Conclusions 171 Notes 172 References The EU and Crisis in Ukraine: Policy Continuity in Times of Disorder? 177 Michał Natorski Introduction 177 Continuity and Change of EU Policy Towards Ukraine 179 Crisis in Ukraine, but in What Terms? 185 Contradictions in the Ideational Order 187 Conclusions 191 Notes 192 References The Revised European Neighbourhood Policy and the EU s Comprehensive Approach Towards the Israeli-Palestinian Conflict: Not so New, After All 197 Patrick Müller Introduction 197 The EU s Comprehensive Approach to Conflict Resolution 198 The Europeanisation of EU Conflict Resolution Policy 200 EU Foreign Policymaking Towards the Israeli- Palestinian Conflict 201 Conclusions 212 Notes 214 References 215

11 Contents xi 11 The EU, the European Neighbourhood Policy and the Western Sahara Conflict: Executive Continuity and Parliamentary Detours 219 Irene Fernández-Molina Introduction 219 The Pot that Burns the Least : Continuity in the EU s Non-engagement with the Resolution of the Western Sahara Conflict 221 An Added Dimension to the Conflict : Dialectical Change in the Western Sahara Conflict and New Sahrawi International Strategies 225 But Tell Us What You Want! : Change as Addition in the European Parliament s Foreign Policy Powers 229 Conclusions 233 Notes 235 References 235 Part IV The Revised European Neighbourhood Policy and Sectoral Cooperation Energy Cooperation: The Leading Light of the Revised European Neighbourhood Policy? Drivers and Limits of the EU s Functionalist Extension 241 Anna Herranz-Surrallés Introduction 241 Continuity and Change: Conceptualising the Evolution of Energy Cooperation in the ENP Area 243 Direct Functionalist Extension: Dilemmas of the Energy Community Model 248 Indirect Functionalist Extension: Euro- Mediterranean Energy Cooperation, Still a Bottom-Up Experience? 251 Energy Diplomacy in the Neighbourhood: The Limits of the EU s Leverage 253 Conclusions 256 Note 257 References 257

12 xii Contents 13 Cooperation on Migration and the Revised European Neighbourhood Policy 263 Agnieszka Weinar Cooperation, Tools and Policy Impact, and Measurement of Change 263 Change in the EU s External Migration Policy and the EU s Neighbourhood 266 Change as Addition : GAMM Tools in the EU s Neighbourhood After Conclusions 279 Note 281 References Conclusions. Plus ça change, plus c est la même chose? The European Neighbourhood Policy and Dynamics of Internal and External Change 285 Laure Delcour Introduction 285 The Merits of An Integrative Approach to Study the ENP 287 Empirical Findings and Their Implications for the European Neighbourhood Policy 288 Continuity and Change in the 2015 ENP Review 293 References 295 Index 299

13 Notes on the Contributors Editors Dimitris Bouris is Assistant Professor at the Department of Political Science at the University of Amsterdam. He is also an Associate Research Fellow at the European Neighbourhood Policy Chair at the College of Europe (Natolin). He is the author of The European Union and Occupied Palestinian Territories: State-Building without a State (Routledge, 2014) for which he was selected as Routledge Politics and International Relations author of the month for February He has has written scholarly articles in peerreviewed academic journals and his research focuses on the European Union s External Relations, the European Neighbourhood Policy, the Arab Spring, the European Union s role in the Israeli-Palestinian conflict as well as on the broader domains of peacebuilding, state-building and conflict resolution. Tobias Schumacher is the Chairholder of the European Neighbourhood Policy Chair at the College of Europe, Natolin campus. He is also an Associate Senior Research Fellow at the Centre for International Studies (CEI-IUL) at the University Institute of Lisbon. Recently, he was a John F. Kennedy Memorial Fellow at the Minda de Gunzburg Center for European Studies at Harvard University. He is the author of numerous articles and book chapters on the European Neighbourhood Policy, Euro- Mediterranean relations, EU-GCC relations, Middle East and North Africa politics, and EU and EU member states foreign policy. He is the co-editor (with Michelle Pace) of Conceptualizing Cultural and Social Dialogue in the Euro-Mediterranean Area. A European Perspective, published by Routledge in xiii

14 xiv Notes on the Contributors Contributors Münevver Cebeci is a Senior Researcher at the European Neighbourhood Policy Chair, College of Europe (Natolin) and an Associate Professor at the European Union Institute (a Jean Monnet Centre of Excellence), Marmara University in Istanbul. She has taught several courses since 2001 and has also published books and scholarly articles on European Foreign Policy and Security Studies. Cebeci is the editor of Issues in EU and US Foreign Policy (Lexington, 2011) and her forthcoming book De-Constructing Ideal Power Europe : The EU and the Arab Change will be published by Lexington Books in Laure Delcour is a Visiting Professor at the College of Europe and a Scientific Coordinator and Research Fellow under the EU-FP7 project Exploring the Security- Democracy Nexus in the Caucasus. Her current research focuses on the EU s influence on domestic change and on regionbuilding processes in the contested neighbourhood. She has extensively published on these topics, including in the Journal of European Integration, Democratization, Problems of Post-Communism and East European Politics. Theofanis Exadaktylos is a Senior Lecturer in European Politics at the Department of Politics at the University of Surrey. His research agenda includes research on the Europeanisation of foreign policy, politics of austerity in Europe, policy implementation and political trust, the rise of populism and the emergence of national stereotypes in the media. His work has appeared among others in the Journal of Common Market Studies and Policy Studies Journal. He is the coeditor (with C. M. Radaelli) of Research Methods in European Studies: Research Design in Europeanization (Palgrave Macmillan, 2012). He is also the co-chair of the ECPR Standing Group on Political Methodology. Irene Fernández-Molina is Lecturer in Middle East Politics at the University of Exeter. Her research interests include foreign policy analysis and conflict analysis and resolution, with a particular focus on North Africa, plus EU foreign policy and Euro- Mediterranean relations. She worked previously as a research fellow at the European Neighbourhood Policy Chair of the College of Europe, Natolin campus (Warsaw) and at the Universidad Complutense de Madrid. She is the author of Moroccan Foreign Policy under Mohammed VI, (Routledge, 2015). Sabine Freizer is Nonresident Senior Fellow at the Atlantic Council. She has 20 years of experience working on southeastern Europe and Eurasia, most

15 Notes on the Contributors xv recently as the Europe Program Director for the International Crisis Group (ICG). She has also worked with the Organisation for Security and Cooperation in Europe (OSCE) and the Open Society Foundations. Sabine Freizer has a PhD from the London School of Economics and an MA from the College of Europe (Bruges). She writes and teaches extensively on the region. Hiski Haukkala is Associate Professor of International Relations at the School of Management at the University of Tampere. He has worked as a Special Adviser in the Unit for Policy Planning and Research at the Ministry for Foreign Affairs of Finland and as a Researcher at the Finnish Institute of International Affairs and the University of Turku. He is the author of numerous articles on EU foreign policy and he is the co-editor (with Maxine David and Jackie Gower) of National Perspectives on Russia: European Foreign Policy in the Making? (Routledge, 2013). Anna Herranz-Surrallés is Assistant Professor in International Relations at Maastricht University. Her current research focuses on two main areas: EU external energy policy and the practices of legitimation and democratic control of foreign and security policy. Her research has appeared in journals such as West European Politics, Journal of Common Market Studies, Mediterranean Politics, Journal of European Public Policy and Cooperation and Conflict. Joanna Kaminska is Policy Advisor at the Committee on Foreign Affairs in the European Parliament. She is also a Research Associate at the Institute for European Studies at Vrije Universiteit Brussel (IES-VUB) and holds a PhD from the University of London, Royal Holloway College. Her last book published with Palgrave Macmillan in 2014 is entitled Poland and the EU Enlargement: Foreign Policy in Transformation. Hrant Kostanyan is a Researcher at the Centre for European Policy Studies (CEPS) Europe in the World unit. His research focuses on EU institutions and decision making, primarily on the European External Action Service (EEAS), the European Neighbourhood Policy (ENP) and the EU s relations with eastern neighbours and Russia. He has published extensively on EU decision making and external policies. Kennet Lynggaard is Associate Professor in European Union Studies at the Department of Society and Globalisation, Roskilde University. His research interests focus on EU governance, research design in EU studies, Europeanisation, European integration and globalisation and symbols and myths in European integration. He has published among others in Journal of European Public Policy, West European Politics, New Political Economy,

16 xvi Notes on the Contributors Comparative European Politics, Journal of European Integration and Sociologia Ruralis. He is the co-editor (with I. Manners and K. Löfgren) of Research Methods in European Union Studies (Palgrave Macmillan, 2015). Patrick Müller is Ikerbasque Research Fellow at the University of the Basque Country. Prior to that, he was Assistant Professor at Vienna University ( ) as well as a Post-doctoral Research Fellow at Johns Hopkins University (Washington), the French Institute for International Relations (Paris) and the German Institute for International and Security Affairs (Berlin). His research focuses on the foreign policy of the European Union (EU), Euro-Mediterranean relations, the Middle East conflict and the EU s role in global governance. Michał Natorski is Marie Curie Research Fellow at the Department of Political Science, University of Liège. His research interests are the political sociology of the foreign policy of the EU, social recognition in international politics and state-society relations in Eastern Europe. His articles have appeared in European Journal of International Relations, Journal of European Public Policy, Cooperation and Conflict, East European Politics and Journal of Politics and Language. Guillaume Van der Loo is a Post-doctoral researcher (FWO) at the Ghent European Law Institute (GELI). His research activities focus on the legal dimension of the EU s neighbourhood relations and the EU s trade policy. He has published several articles and book chapters on the Association Agreements and Deep and Comprehensive Free Trade Areas with the Eastern Partnership countries and on Russia s WTO accession. He also is a researcher at the Centre for European Policy Studies (CEPS) in Brussels. Peter Van Elsuwege is Professor in EU law at the Ghent European Law Institute (GELI) of Ghent University and Visiting Professor at the College of Europe (Natolin). His research activities essentially focus on the law of EU external relations and EU constitutional law. Specific attention is devoted to the legal framework of the relations between the European Union and its East European neighbours. Agnieszka Weinar has a PhD in Political Science from the University of Warsaw. She works as Research Fellow at the European University Institute in Florence and prior to that as a policy officer responsible for the external dimension of EU migration policy at the European Commission DG HOME (JLS). Her research focuses on the international dimension of migration policies in Europe and globally.

17 List of Tables Table 2.1 Assessment of the most-cited articles in ENP research based on the six trade-offs of causal analysis 42 Table 12.1 Evolution of the EU-sponsored energy initiatives in the ENP area (1990s 2010s) 244 Table 12.2 Modes of interaction in the energy domain 248 Table 13.1 Participation in the regional consultative processes across the EU s neighbourhood 269 Table 13.2 Distribution of projects according to their policy focus implemented in Moldova within the mobility partnership, Table 13.3 Participation in EU-level external migration policy tools, xvii