The European Union’s The European Union’s Crisis Management System Crisis Management System

Conflict Research Society Annual Conference 2008Conflict Research Society Annual Conference 2008““Conflict and Complexity”Conflict and Complexity”

University of Kent at Canterbury, UK University of Kent at Canterbury, UK 2-3 September 20082-3 September 2008

Natália F. de O. Marques LealNatália F. de O. Marques LealUniversity of Kent at Canterbury (UK)University of Kent at Canterbury (UK)

IntroductionIntroduction EU’s security roleEU’s security role ConceptsConcepts CM origins and developmentCM origins and development CM operational recordCM operational record CM structuresCM structures Decision-making proceduresDecision-making procedures

Conc. Conc. A lot still to be done but progressive A lot still to be done but progressive attempts to endow the EU with the necessary attempts to endow the EU with the necessary means to achieve its ambitionsmeans to achieve its ambitions

EU’s (desired) role in the global arenaEU’s (desired) role in the global arena

““This is a world of new dangers but also of new This is a world of new dangers but also of new opportunities. The European Union has the potential to opportunities. The European Union has the potential to make a major contribution, both in dealing with the make a major contribution, both in dealing with the threats and in helping realise the opportunities. An active threats and in helping realise the opportunities. An active and capable European Union would make an impact on a and capable European Union would make an impact on a global scale. In doing so, it would contribute to an global scale. In doing so, it would contribute to an effective multilateral system leading to a fairer, safer and effective multilateral system leading to a fairer, safer and more united world.”more united world.” (ESS, 2003: 14)(ESS, 2003: 14)

EU’s ambition to ‘export peace and security beyond EU’s ambition to ‘export peace and security beyond its borders’its borders’ (Europa)(Europa)

EU’s & CMEU’s & CM (Surveys)(Surveys) Worldviews 2002:Worldviews 2002:

• Europe should play a more active role in world affairs (even though Europeans were mainly concerned with domestic issues).

• Favoured economic and political tools over military instruments (in spite of the willingness to use force in certain circumstances).

Transatlantic Trends 2006Transatlantic Trends 2006: : • 46% of Europeans felt that “the EU should strengthen its

military power to play a larger role in the world.” The External Image of the European Union (2007):The External Image of the European Union (2007):

• “the EU is often associated with peace-making processes and security concerns” + crisis management approach one of its elements of distinctiveness (even though EU not widely known outside its borders)

List of available CP instrumentsList of available CP instruments

EU’s CP toolbox includesEU’s CP toolbox includes “development co- “development co-operation and external assistance, trade policy operation and external assistance, trade policy instruments, social and environmental policies, instruments, social and environmental policies, diplomatic instruments and political dialogue, diplomatic instruments and political dialogue, co-operation with international partners and co-operation with international partners and NGOs, as well as the new instruments in the NGOs, as well as the new instruments in the field of crisis management [inc. field of crisis management [inc. civilian and/or civilian and/or

military missionsmilitary missions].” + Enlargement!].” + Enlargement!((http://http://europa.eu.int/comm/external_relations/cfsp/cpcm/cp.htmeuropa.eu.int/comm/external_relations/cfsp/cpcm/cp.htm))

CM & CP and the conflict cycleCM & CP and the conflict cycle Conflict Prevention (CP) Conflict Prevention (CP)

the EU’s actions (both short and long-term) “to address the the EU’s actions (both short and long-term) “to address the conflict conflict dynamics by addressing structural root-causes of conflict as well dynamics by addressing structural root-causes of conflict as well as as the expressions of violence. [In this sense,] Conflict prevention the expressions of violence. [In this sense,] Conflict prevention

activities can and should be designed before a conflict (preventing activities can and should be designed before a conflict (preventing the the outbreak), during a conflict (preventing its spread) and after outbreak), during a conflict (preventing its spread) and after (preventing its re-emergence).” (preventing its re-emergence).” (European Commission)(European Commission)

versusversus Crisis Crisis (or conflict)(or conflict) Management (CM) Management (CM) • activities that take place after initial prevention has failed and a activities that take place after initial prevention has failed and a

conflict has already erupted in order to contain both its vertical and conflict has already erupted in order to contain both its vertical and horizontal escalationhorizontal escalation

• short-term security concernsshort-term security concerns

The EU’s pillared-structure (focus on ESDP; 2nd pillar)The EU’s pillared-structure (focus on ESDP; 2nd pillar)

From Peace Within to Peace BeyondFrom Peace Within to Peace Beyond

‘‘Never again’ postulate; 1951 (Paris Summit)Never again’ postulate; 1951 (Paris Summit): ECSC: ECSC Conflict preventionConflict prevention as the driving force of the EU integration processas the driving force of the EU integration process Internal concern Internal concern versusversus external projection/‘model to export’ external projection/‘model to export’

The establishment of CFSP (1993) and birth of ESDP (1999)The establishment of CFSP (1993) and birth of ESDP (1999) End of Cold War + Yugoslavian conflictEnd of Cold War + Yugoslavian conflict

UN - Agenda for Peace (1992)UN - Agenda for Peace (1992) OSCE - Charter of Paris for a New Europe & Conflict Prevention CenterOSCE - Charter of Paris for a New Europe & Conflict Prevention Center NATO - new strategic concept & enlargementsNATO - new strategic concept & enlargements WEU / Council of EuropeWEU / Council of Europe OAU - Mechanism for Conflict Prevention, Management, and Settlement OAU - Mechanism for Conflict Prevention, Management, and Settlement

(1993)(1993)

EU CM: Origins and Evolution (1)EU CM: Origins and Evolution (1)

1991/3: TEU 1991/3: TEU CFSP: “… CFSP: “…eventual framing of a eventual framing of a common defence policycommon defence policy””

1997/99: Amsterdam Treaty 1997/99: Amsterdam Treaty “… “…progressive framing progressive framing of a common defence policyof a common defence policy” + Policy Planning and ” + Policy Planning and Early Warning Unit (PPEWU)Early Warning Unit (PPEWU)

1998: French-British Summit at St. Malo:1998: French-British Summit at St. Malo:““the Union must have the capacity for autonomous the Union must have the capacity for autonomous action, backed by credible military forces, the means action, backed by credible military forces, the means to decide to use them, and a readiness to do so, in to decide to use them, and a readiness to do so, in order to respond to international crises”order to respond to international crises”

1999: June 1999: June (Cologne European Council)(Cologne European Council) – establishment – establishment of ESDPof ESDP

EU CM: Origins and Evolution (2) 1999EU CM: Origins and Evolution (2) 1999

June – ESDP + Nomination of Javier SolanaJune – ESDP + Nomination of Javier SolanaDecember – Helsinki European Council:December – Helsinki European Council:

““cooperating voluntarily in EU-led operations, Member States must be able, cooperating voluntarily in EU-led operations, Member States must be able, by 2003, to deploy within 60 days and sustain for at least 1 year military by 2003, to deploy within 60 days and sustain for at least 1 year military forces of up to 50,000–60,000 persons capable of the full range of forces of up to 50,000–60,000 persons capable of the full range of Petersberg tasksPetersberg tasks.”.”

Petersberg Tasks = “humanitarian and rescue tasks, peacekeeping tasks and Petersberg Tasks = “humanitarian and rescue tasks, peacekeeping tasks and tasks of combat forces in crisis management, including peacemaking” tasks of combat forces in crisis management, including peacemaking” (TEU)(TEU)

(NATO) April – Berlin Plus Arrangements:(NATO) April – Berlin Plus Arrangements:NATO MS “… stand ready to define and adopt the necessary arrangements NATO MS “… stand ready to define and adopt the necessary arrangements for ready access by the European Union to the collective assets and for ready access by the European Union to the collective assets and capabilities of the Alliance, for operations in which the Alliance as a whole capabilities of the Alliance, for operations in which the Alliance as a whole is not engaged militarily as an Alliance. (…)”is not engaged militarily as an Alliance. (…)”

EU CM: Origins and Evolution (3)EU CM: Origins and Evolution (3)

2000: June 2000: June (Stª Maria da Feira)(Stª Maria da Feira) – priority areas for civilian – priority areas for civilian missions = police, missions = police, strengthening of thestrengthening of the rule of law, rule of law, strengthening strengthening civilian administration, and civil protectioncivilian administration, and civil protection

2001: Adoption of the 2001: Adoption of the EU Programme for the Prevention of EU Programme for the Prevention of Violent ConflictsViolent Conflicts (Götenborg)(Götenborg)

2003: December – 2003: December – A Secure Europe in a Better WorldA Secure Europe in a Better World, the , the European Security StrategyEuropean Security Strategy

2004: [EU-25] May/June – (military) 2004: [EU-25] May/June – (military) Headline Goal 2010Headline Goal 2010 + Dec. – + Dec. – Civilian Headline Goal 2008Civilian Headline Goal 2008

2005: European Gendarmerie Force2005: European Gendarmerie Force 2007: new 2007: new Civilian Headline Goal 2010 + Civilian Headline Goal 2010 + Treaty of LisbonTreaty of Lisbon

EU Crisis Management OperationsEU Crisis Management Operations1.01.2003 1.01.2003 –– 31.12.2009 31.12.2009 EUPMEUPM I, II & III (EU Police Mission in Bosnia & Herzegovina) I, II & III (EU Police Mission in Bosnia & Herzegovina) CC

31.03.2003 – 15.12.200331.03.2003 – 15.12.2003 Concordia (Concordia (EU Military Operation in former Yugoslav Republic of Macedonia) MEU Military Operation in former Yugoslav Republic of Macedonia) M

12.06.2003 – 1.09.200312.06.2003 – 1.09.2003 Artemis (Artemis (EU Military Operation in Democratic Republic of Congo) MEU Military Operation in Democratic Republic of Congo) M

15.12.2003 – 14.12.200515.12.2003 – 14.12.2005 EUPOL ProximaEUPOL Proxima (EU Police Mission in the FYROMacedonia) C  (EU Police Mission in the FYROMacedonia) C 

2.12.2004 – (open)2.12.2004 – (open) EUFOR-Althea (EU Military Operation in Bosnia and Herzegovina) MEUFOR-Althea (EU Military Operation in Bosnia and Herzegovina) M

16.7.2004 – 14.7.200516.7.2004 – 14.7.2005 EUJUST Themis (EU Rule of Law Mission in Georgia) C EUJUST Themis (EU Rule of Law Mission in Georgia) C 

8.06.2005 8.06.2005 – – 30.06.200930.06.2009 EUSEC DR CongoEUSEC DR Congo (EU Security Sector Reform Mission in D.R. Congo) C/M (EU Security Sector Reform Mission in D.R. Congo) C/M

1.07.2005 – 30.06.20091.07.2005 – 30.06.2009 EUJUST LEX (EU Integrated Rule of Law Mission for Iraq) CEUJUST LEX (EU Integrated Rule of Law Mission for Iraq) C

15.9.2005 – 15.12.200615.9.2005 – 15.12.2006 AMM (Aceh Monitoring Mission) C AMM (Aceh Monitoring Mission) C 

30.11.2005 30.11.2005 ––24.11.2008*24.11.2008*

EUBAM Rafah (EU Border Assistance Mission at Rafah Crossing Point in the Palestinian EUBAM Rafah (EU Border Assistance Mission at Rafah Crossing Point in the Palestinian Territories) C Territories) C 

15.12.2005 – 14.6.2007?15.12.2005 – 14.6.2007? EUPATEUPAT (EU Police Advisory Team in the FYROMacedonia) C  (EU Police Advisory Team in the FYROMacedonia) C 

1.1.2006 – 31.12.20091.1.2006 – 31.12.2009 EUPOL COPPSEUPOL COPPS (EU Police Mission in the Palestinian Territories) C (EU Police Mission in the Palestinian Territories) C

10.04.2006–31.03.2008?10.04.2006–31.03.2008? EUPT Kosovo (EU Planning Team in Kosovo) C EUPT Kosovo (EU Planning Team in Kosovo) C 

12.06.2006 – 30.11.2006 12.06.2006 – 30.11.2006 EUFOR DR Congo (EU Military Operation in Support of MONUC during elections in DRCongo) M EUFOR DR Congo (EU Military Operation in Support of MONUC during elections in DRCongo) M 

17.06.2007 – 30.05.201017.06.2007 – 30.05.2010 EUPOL Afghanistan (EU Police Mission in Afghanistan) CEUPOL Afghanistan (EU Police Mission in Afghanistan) C

1.07.2007 – 30.06.20091.07.2007 – 30.06.2009 EUPOL RDCongo (EUPOL RDCongo (EU Police Mission and its interface with Justice Sector, DRC) CEU Police Mission and its interface with Justice Sector, DRC) C

25.01.2008 – ?25.01.2008 – ? EUFOR TCHAD/RCA (EU Military Operation in Eastern Chad and North Eastern Central African EUFOR TCHAD/RCA (EU Military Operation in Eastern Chad and North Eastern Central African Republic) M Republic) M 

16.02.2008 – 2010?16.02.2008 – 2010? EULEX Kosovo (European Union Rule of Law Mission in Kosovo) C EULEX Kosovo (European Union Rule of Law Mission in Kosovo) C 

26.02/01.05.2008 – 01.05.2009?

EU SSR Guinea-Bissau (EU mission in support of Security Sector Reform in Guinea-Bissau) C/MEU SSR Guinea-Bissau (EU mission in support of Security Sector Reform in Guinea-Bissau) C/M

EU Crisis Management Operations (2)EU Crisis Management Operations (2)

2003: January – 12003: January – 1stst ESDP civilian mission ESDP civilian mission (EUPM to BiH)(EUPM to BiH) + March – 1 + March – 1stst EU-led EU-led military operation in Europe military operation in Europe (Concordia to (Concordia to FYROM)FYROM) + May – 1 + May – 1stst EU-led military EU-led military operation outside of Europe operation outside of Europe (Operation (Operation Artemis to Burnia, DRCongo)Artemis to Burnia, DRCongo)

= 18 missions (12 civilian + 6 military), 11 = 18 missions (12 civilian + 6 military), 11 ongoingongoing

Community & Other Community & Other CM and CP ActivitiesCM and CP Activities

2001: Feb.– Establishment of a Rapid Reaction Mechanism (RRM) + 2001: Feb.– Establishment of a Rapid Reaction Mechanism (RRM) + August – 1August – 1stst deployment of the RRM (Macedonia) deployment of the RRM (Macedonia)

2005: EUBAM Moldova/Ukraine2005: EUBAM Moldova/Ukraine

Region and Country Strategy Papers (RSP/CSP) - development and Region and Country Strategy Papers (RSP/CSP) - development and external aid policyexternal aid policy

Peace-building initiativesPeace-building initiatives SSR & DDR programmesSSR & DDR programmes Cross-cutting issues: SALW, landmines, drugs, conflict diamonds + Cross-cutting issues: SALW, landmines, drugs, conflict diamonds +

management natural resourcesmanagement natural resources Early warning capacity + financial mechanisms Early warning capacity + financial mechanisms Work with other organisations (UN, AU)Work with other organisations (UN, AU)

2007: Peace-building Partnerships (PbP)2007: Peace-building Partnerships (PbP)

Communitarian vs. intergovernmentalCommunitarian vs. intergovernmental CM CM (and CP)(and CP) not restricted to one single pillar but not restricted to one single pillar but

spreads across all of them spreads across all of them ≠≠ institutions, institutions, ≠ ≠ decision-making and financing decision-making and financing

procedures procedures

1st pillar

EC

2nd Pillar

CFSP (inc. ESDP)

3rd pillar

‘JHA’

EU’s complex pillared-structureEU’s complex pillared-structure

European Union European Union

European Commission

(President)

European Commission

(President)

European Council European Council

Council Secretary- General/

HR for CFSP

Council Secretary- General/

HR for CFSP

Commissioner for External Relations

Commissioner for External Relations

Private Office SG/HR

Private Office SG/HR

Directorate-General EExternal and Politico-

Military Affairs

Directorate-General EExternal and Politico-

Military Affairs

Policy Planning and Early Warning Unit

Policy Planning and Early Warning Unit

Military StaffMilitary Staff

Directorate VIII Defence Aspects

Directorate VIII Defence Aspects

Directorate IXCivilian Crisis Management

Directorate IXCivilian Crisis Management

Directorate-General External Relations

Directorate-General External Relations

Directorate ACrisis Platform -

Policy Co-ord. CFSP

Directorate ACrisis Platform -

Policy Co-ord. CFSP

Deputy Director-General DGA-1

Deputy Director-General DGA-1

Council of Ministers (GAERC)

Council of Ministers (GAERC)

Permanent Representatives

(COREPER)

Permanent Representatives

(COREPER)

Political and Security Committee (PSC)

Political and Security Committee (PSC)

Civilian Crisis Management Committee

Civilian Crisis Management Committee

Military CommitteeMilitary CommitteeDeputy Director-General DGA-3

Deputy Director-General DGA-3

Deputy Director-General DGA-2

Deputy Director-General DGA-2

EU PresidencyEU Presidency

Commissioner for External Relations

Commissioner for External Relations

Directorate-General External Relations (DG RELEX)

Directorate-General External Relations (DG RELEX)

Directorate ACrisis Platform - Policy Co-ordination

in CFSP

Directorate ACrisis Platform - Policy Co-ordination

in CFSP

Deputy Director-General DGA-1 (CFSP, Multilateral Relations, North America,

East Asia, NZ, EEA, EFTA)

Deputy Director-General DGA-1 (CFSP, Multilateral Relations, North America,

East Asia, NZ, EEA, EFTA)

Deputy Director-General DGA-3(Asia and Latin America)

Deputy Director-General DGA-3(Asia and Latin America)

Deputy Director-General DGA-2(ENP, Eastern Europe, Southern Caucasus and

Central Asia, Middle East and South Mediterranean)

Deputy Director-General DGA-2(ENP, Eastern Europe, Southern Caucasus and

Central Asia, Middle East and South Mediterranean)

Unit A2Crisis Management and

Conflict Prevention

Unit A2Crisis Management and

Conflict Prevention

Unit A3CFSP and

Rapid Reaction Mechanism

Unit A3CFSP and

Rapid Reaction Mechanism

Unit A4Security Policy

Unit A4Security Policy

Commission CM StructuresCommission CM Structures

European Council (Heads of State and Government + President EC)

European Council (Heads of State and Government + President EC)

Council of Ministers (GAERC)

Council of Ministers (GAERC)

Permanent Representatives Committee (COREPER)

Permanent Representatives Committee (COREPER)

Political and Security Committee (PSC)Political and Security Committee (PSC)

Civilian Crisis Management Committee(CIVCOM)

Civilian Crisis Management Committee(CIVCOM)

Military Committee (EUMC)Military Committee (EUMC)

EU PresidencyEU Presidency

Politico-Military Group (PMG)Politico-Military Group (PMG)

Military Staff (EUMS)Military Staff (EUMS)

Council Secretariat (next slide)Council Secretariat (next slide)

Council StructuresCouncil Structures

European Council European Council ((Heads of State and Heads of State and Government + President EC)Government + President EC): highest level of : highest level of political and strategic decisionpolitical and strategic decision

GAERC/ERC GAERC/ERC (Foreign Affairs Ministers+EC)(Foreign Affairs Ministers+EC): : decisions on external relations, incl. CFSP, decisions on external relations, incl. CFSP, ESDP, trade and development cooperation + ESDP, trade and development cooperation + ensure coherence across EU’s external actionensure coherence across EU’s external action

COREPER COREPER (Ambassadors & deputies+EC)(Ambassadors & deputies+EC): : prepares Council work and decisionsprepares Council work and decisions

Council ESDP Structures (2000/01)Council ESDP Structures (2000/01)

PSC - Political and Security Committee PSC - Political and Security Committee (Ambassadors & (Ambassadors & deputies)deputies): monitors : monitors international situation in CFSP areas + international situation in CFSP areas + contributes to the definition of policies + monitors the contributes to the definition of policies + monitors the implementation of agreed policies + exercises political control implementation of agreed policies + exercises political control & strategic direction of CM operations& strategic direction of CM operations

CIVCOM – Committee for the Civilian Aspects of Crisis CIVCOM – Committee for the Civilian Aspects of Crisis Management Management (MS diplomats/officials and experts)(MS diplomats/officials and experts): reports to PSC : reports to PSC and delivers opinions on civilian aspects of ESDPand delivers opinions on civilian aspects of ESDP

EUMC – Military Committee EUMC – Military Committee (MS Chiefs of Staff)(MS Chiefs of Staff): : supreme supreme military body within the Council of the EU / forum for military body within the Council of the EU / forum for military consultation and cooperation between the EU MS in military consultation and cooperation between the EU MS in the field of CP and CMthe field of CP and CM

Council Secretary General/ HR for CFSP

Council Secretary General/ HR for CFSP

Private Office SG/HR

Private Office SG/HR

Directorate-General EExternal and Politico-

Military Affairs

Directorate-General EExternal and Politico-

Military Affairs

Policy Planning and Early Warning Unit

(PPEWU)

Policy Planning and Early Warning Unit

(PPEWU)

Military Staff (inc. Civil-Military Cell)

Military Staff (inc. Civil-Military Cell)

Joint Situation Centre (SITCEN)

Joint Situation Centre (SITCEN)

Directorate VIII Defence Aspects

Directorate VIII Defence Aspects

Directorate IXCivilian C.M.

Directorate IXCivilian C.M.

Police Unit Police Unit

Civil Aspects of Crisis Management Civil Aspects of

Crisis Management

Civilian Planning and Conduct Capability

(CPCC)

Civilian Planning and Conduct Capability

(CPCC)

EU Satellite Centre (SATCEN)

EU Satellite Centre (SATCEN)

European Institute for Security Studies

(ISS)

European Institute for Security Studies

(ISS)

Deputy Secretary-General

Deputy Secretary-General

HR/SG: HR/SG: assists the Council in foreign policy matters, through assists the Council in foreign policy matters, through contributing to the formulation, preparation and implementation contributing to the formulation, preparation and implementation of European policy decisionsof European policy decisions

DGE VIII – Defence AffairsDGE VIII – Defence Affairs DGE IX – Civilian Crisis ManagementDGE IX – Civilian Crisis Management SG/HR Private Office – formulates policy on CFSP matters + SG/HR Private Office – formulates policy on CFSP matters +

other tasks other tasks PPEWU – Policy Planning and Early Warning UnitPPEWU – Policy Planning and Early Warning Unit EUMS – Military Staff EUMS – Military Staff (seconded military and civilian experts)(seconded military and civilian experts): :

performs early warning, situation assessment and strategic performs early warning, situation assessment and strategic planning of Petersberg tasks […] and all EU-led operationsplanning of Petersberg tasks […] and all EU-led operations

CPCC CPCC (Council officials and seconded experts)(Council officials and seconded experts) - - effective planning effective planning and conduct of civilian ESDP crisis management operations, as and conduct of civilian ESDP crisis management operations, as well as the proper implementation of all mission-related tasks well as the proper implementation of all mission-related tasks

Council Secretariat StructuresCouncil Secretariat Structures

Civilian Planning and Conduct CapabilityCivilian Planning and Conduct Capability (CPCC) (CPCC)Civilian Operations

CommanderCivilian Operations

Commander

Chief of StaffChief of Staff

Mission SupportMission Support Conduct of OperationsConduct of Operations

ConceptsConcepts

FinanceFinance

ProcurementProcurement

Logistics, Security / CISLogistics, Security / CIS

Human ResourcesHuman Resources

Europe / BalkansEurope / Balkans AfricaAfrica Asia/ Middle EastAsia/ Middle East

EUPMEUPM

EULEX KosovoEULEX Kosovo

EU AMISEU AMIS

EUPOL RD CongoEUPOL RD Congo

Guinea BissauGuinea Bissau

EUBAM RafahEUBAM Rafah

EUPOL COPPSEUPOL COPPS

EUJST LEXEUJST LEX

EUPOL AfghanistanEUPOL Afghanistan

Conclusion (1)Conclusion (1)

High ambitions vs. no specific structuresHigh ambitions vs. no specific structures Considerable evolution since 1999, at a Considerable evolution since 1999, at a

surprising pace (structures + operations + surprising pace (structures + operations + capabilities)capabilities)

Intergovernmental character of ESDP shields Intergovernmental character of ESDP shields it from internal political crises within the EUit from internal political crises within the EU

Conclusion (2)Conclusion (2)

Internal rivalries (inter- and intra-pillar)Internal rivalries (inter- and intra-pillar) Civilian versus military structuresCivilian versus military structures The Secretariat’s powerThe Secretariat’s power Most decisions taken by national officials – Most decisions taken by national officials –

lack of democratic legitimacy?lack of democratic legitimacy? Coherence and consistency; ‘capability-Coherence and consistency; ‘capability-

expectation gap’ vs. Growing expectationsexpectation gap’ vs. Growing expectations Treaty of LisbonTreaty of Lisbon